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REPORT

OF THE

RAILWAY ACCIDENTS
INQUIRY COMMITTEE

1968

PART-Il

AUGUST, 1969

CONTENTS

Page

Number

Chapter 1

Introductory

Chapter 11

The. Human element

Significance of the human element

Discipline and morale of staff

Factors affecting discipline—discipline and safety .. .,

Faotors affecting morale of officers and supervisors

... 7

Trade, Unions

Functioning of trade unions .. .. ..

Plurality of trade unions .. .. ,. ..

Outsiders as union office-bearers .. ,. ..

Sectional (Category-wise) unions ..

Supervisors as membors of the union ,.

An Association for supervisory categories

Welfare Organisation

Trade unions sponsoring eases of individual staff

The existing Welfare Organisations on the Railways

Welfare bureaux of a new pattern .. . .

Training of Welfare Inspectors

. .. 14

The effect of outside interference

The role of the Vigilance Organisation

lfi

Impact of Vigilance on the initiative of the executives

' 10

Internal Vigilance voesus outside' 'policing’

Disciplinary Procedure

The growth of Article 311 of the Constitution

Special Inquiry Officers ...

Status and grades of supervisors .. ..

Loss of self-confidence among supervisors

Reservation of posts for scheduled castes and scheduled tribes

The calibre and position of railway oftioers -.

Officer-staff and aupOr visor-staff ratio ..

The burden of paper wnrlc

Utility of consultancy - - • ■

Devolution of authority and delegation of powers

Railway Labour Science Research Institute ..

OttAPTER III
Training of staff

Training schools—capacities and facilities ,, .. .. ,. ,. 38

Training of staff in the maintenance and operation of modern sophisticated

equipment .. .. •• - - , .. 38

Training of signalling staff .. .. .. .. .. 39

Staff for maintenance of electric locomotives, traction and other electrical equip¬
ment •. •. •• •• . * .. 41

Staff for maintenance of diesel engines . , 4 1

Training of diesel and eleetrio locomotive drivers 42

Staff for mechanised inspection and maintenance of track .. *3

Staff to operate ultrasonic testing equipment *3

Personnel of tlie stores department' ■■ 4>

Refresher training ii

Training of supervisors • ■ 44

Training of officers 45

I’HiFTfiB TV
Ot/ier stuff mattes*

Recruitment procedure and the Railway Service Commissions .. 46

Delays involved in selection of candidates . - • • • • 46

Qualifications for recruitment to certain categories of t echnical staff’ 47

Housing accommodation for essential staff 46

Overtime working of staff • ■

Honrs of duty of running staff . . ■ ■ o'

Duty hours of station masters and assistant station master* at. stations manned by

Vrae station mastei and one assistant, station maRier .. .. 32

Running Rooms . . .. . • 34

Uniforms . . . k%J .. .. ■ ■ 34

t ’mxrTKR i'

Kill*#. Hale Bat'll'* anil Manual.*

General Rules . • •

Bilingual Rule Books . . • • 3'

Unified manuals .. .. • • 3*

Hand Books . ■ ■ • • •

CHAPTER VI

I'rrwanenl Wat)

Rails • • • 60

Welding of rails .. .. • ■ • •

Sleepers and fastenings ■ • • • •

r . Ol)

Track maintenance .. "

Engineering 1 renaissance ’ •• ••

Ballast and ballast diagrams . . **

Unserviceable sleepers in track ®4

‘Distressed’’ bridges • • • ■ • ■

Gangstrengt hs .. ■ • • • • ■ • • ®°

Curves .. ■ ■ ■ ■ • • • •

Turn-outs .. ■ • ■ ■ • • ■ • ■ ■ ■

Rail failures .. .. •• •• ®*

Towards modernisation of track maintenance • • • • ®®

Measured shovel packing .. *3

Directed track maintenance 70

Mechanised maintenance .. • - ■ • 71

Inspection of track by modern methods .. ■ • 72

Half yearly reports by permanent way inspectors .. 72

Stores workload 73

Chapter VII

Level cmamnge

Census , , . , , , 75

Norm* for deciding tho ease for manning an unmanned lovel orossing or upgrading

a manned level crossing 75

Railway Safety Works Fund ,. 76

Warning devices at manned gates .. 77

Signals at midsection level crossings , . ,, 77

Barrier* at manned level crossings ,. 77

Automatic half.barriers 77

future policy in regard to now level crossings ,, .. 79

Chapter VIII
HU/nuUing and inttrloekiny

Role of signalling . . 80

Visibility of signals ,. 82

Colour light signals 83

Semaphore signals .. 83

Pre-warning of slop signal 83

Braking distances and sighting boards 83

Braking distance trials and resiting of signals .. .. .. 83

Sighting hoards .. . .. .. .. 83

Block instruments 84

Centralised operation of signals and points .. .. 84

Panel interlocking .. 84 .

Route-relay interlocking .. 84

Centralised traftie control .. .. 80

Track circuiting .... .. , , . . 86

Track circuits to extend to block clearance points ., .. 90

Failure of track circuits .. ,, ,, 90

Permali fish-plates .. .. .. ,. 91

Automatic Train Control .. .. 92

A TO on automatic signalling sections ,. 94

Cab signalling .. ,. .. ,. 94

Manufacture of electrical signalling equipment .. .. 94

■Maintenance and inspect ion of signalling equipment 95

Maintenance 95

Inspection ., ,, 96

Joint inspections of signal* . . .... 96

I nadequate telecommunieat ion , . .. .. . . 96

Tho financial angle in modern signalling .. . . .. 97

Chapter J A
Motive. 1‘oirei

Steam locomotive sheds .. . . . 98

Examination and maintenance of steam locomot ives .. .. 98

Booking of repairs on locomotives .. .. . . . . . . 98

Equipment at the incoming inspection pit 98

Elocution of repairs .. 99

Repeated booking register .. .. .. ... .. T9

Defects resulting in unsafe conditions .. 1.01

Def- t.iv- wheels or tries . . . , , . , 101

Broken axles or journals .. .. .. .. .. 101

Handling of locomotives by drivers ,. ., .. 102

Standard schedules of maintenance .. 102

Running performance of a locomotive .. ,. .. 102

Steam locomotivo workshops .. .. .. .. .. 103

Capacity far periodical overhaul .. .. .. .. .. .. 103

Machines and equipments .. ,. .. .. .. .. 103

Testing of springs .. .. .. .. .. .. .. 104

Balancing the weight of engines .. ,. .. .. .. ,, 104

Ultrasonic tosting equipment .. .. .. .. .. .. 104

Quality control .. .. .. .. .. 104

Headlights and dimmer switches .. .. .. .. .. .. 105

Diesel and electric locomotive sheds .. . . .. .. ., 106

Diesel locomotives ■. .. .. .. .. .. .. 106

Electric locomotives .. .. .. .. .. .. ., 106

Speedometers and speed recording apparatus.. .. .. .. 107

Drivers' vigilance device .. .. .. .. ., 108

Anti-wheel slip device .. .. .. .. .. .. 110

Chapter X

Goods and coaching stock

Examination of goods wagons

. .

111

Maintenance of goods wagons

113

Sioklines

113

Examination and maintenance of coaching rakes

, ,

114

incidence of damaged coaches due to electrical and mechanical dofects ..

116

Coaches marked sick on mechanical account

116

Coachos marked sick on olcotrical account

116

Maintenance of clectrioal fittings in coaches

116

Investigation of f iilures

117

Defoot investigations

117

Modifications

117

Equalising beams on IRS metre gauge bogie coaches

118

Laminatod bearing springs of BOX wagons , ,

119

Hot Boxes

120

Maintenance of EMU coaches

121

Brake power

121

Trains on steam traction

121

Narrow gauge trains

123

Diesel hauled trains

12i

Marshalling of a iti-telescopic coaches on passenger trains

123

Goods brakevans

123

Carriage and wagon workshops—capacity

124

Broken axles and journals and hot axles

124

Roller bearing axle boxes

124

Maohines in workshops

126

Examination of coaohes after periodical overhaul

126

Neutral control examination

. .

126

Checks by Neutral Control Flying Squad

127

Oseraged rolling stock

127

CHAPTER XI

Stores

Shortage of spare parte and stores ..

129

Inferior quality of tools and stores

130

Manufacturer's markings ,.

132

Procurement of stores through the agency of Directorate General of Supplies

and

Disposals .. .. ....

132

Advantages claimed ou behalf of bulking

133

Powers of purchase of stores

180

Decentralisation of stores

137

Scientific methods of inventory control and materials management

138

Manning of the stores organisation ..

139

CHAPTER XU

Theft■ vandalism and sabotage

Theft of railway equipment; and vandalism

140

3 abotage

141

Chaster Xlll

The GcriMnU*ion of Raihcay Safety

Historical .. .. .. ..

144

functions

144

Organisation .. .. : Tt&JWi

146

inquiries into acoidents

147

Inspections .. .. .. .. ’{f

160

independence of the Commission

163

Commissions of Inquiry ..

166

Personnel of the Commission and their etat us

166

Location

167

Annual Report ..

158

Chapter XIV

The Research, Designs and Standards Organisation and its future, role

Genesis

159

The present organisational structure

160

Research ..

161

Operations research

163

Design

163

Standards .. .. ..

164

■Signalling and teleoomwunicatione

164

Checks and inspections .. ., .. ...

« •

166

Consultancy functions

* •

166

future development

165

Equipment

166

Finance

167

Reorganisation of the R D 8 0

••

167

Chapter X V

Accident Statistics

Diagnosis-oriented statistics

. *

168

Uniform basis of compilation of statistics

169

Streamlining the classification

10J

Chapter XVI
Safely Organisation

Position of safety counsellor;- ., .. ., .. ,. - 175

Safety camps .. .. ,. ., .. 176

Safety Model Car .. .. .. ., .. ... 177

High visibility clothing , . , . , . . . . . 178

Inspections .. .. .. .. .... ,. 178

Chapter XVII

Summary of Observations and Recommendations — Ackrioiclctlriwent*

Summary of observations and recommendations ,. .. .. .. 179

Acknowledgments .. .. .. ... .. .. .. 230

ANN'EXURES

I. Statement showing the details of oases of individual staff and matters of a policy

nature sponsored by trade unions .. .. .. 232

II. Instances of grievances of station .staff brought up by the trade unions and

their redress .! .. .. .. ., ., .. 234

III. Instances of grievances of driving staff' brought up bv the trade unions and

' their redress .. .. .. .. •• 236

IV. Analysis of expenditure on different types of signalling development works .. 238

V. Statement showing provision and year-wise programming of track circuiting of

block stations on trunk routes, mainlines and the branch lines .. .. 238

VT. Statement showing the extent of interruption to control communication duo to

copper wire thefts ,. .. .. .. .. 239

VII. Statement showing the incidence of coaches marked sick for non-scbeduled

mechanical and electrical repairs . . ,. ., .. .. 240

VIII. Statement showing the various mechanical defects for which the coaches were

markod sick .. .. .. .. 241

IX. Statement showing position in respect of execution of ten selected modifications

to carriage and wagon components-by the-Hallways .. .. 242

X. Statement showing progress of implementation of the recommendations of the

Director (Hot Boxes) contained in special investigation report (1966) .. 244

XI. Performance of D.G.S. & D. regarding coverage and supply against programme

indents submitted by the Railways .. .. .. .. .. 246

XII. List of oquipmout required by tho R D S O in so far as considerations of safety

are concerned 248

APPENDIX

List of places and installations visited and persons interviewed by the Railway Acci¬
dents Inquiry Committee (1968) .. .. .. .. 250

Chapter I
INTRODUCTORY

Part I of the Committee’s Report had been devoted mainly to its first
term of reference namely, to review the position of accidents on the Indian
Railways since the appointment of the kunzru Committee, in the light of
recommendations made by it and their implementation. The subject matter
of that part of the Report thus was chiefly an appraisal of the position of acci¬
dents and the action taken by the Government in the past few years on the
lines indicated by the Kunzru Committee. The second term of reference of
the Committee, namely, to suggest measures for further minimising acci¬
dents is broader in scope and it is to this term of reference that we now
address ourselves.

2. The occurrence of a few serious accidents in somewhat quick succes¬
sion in the earlier part of 1968 had created considerable commotion in
Parliament and the Press of which in a way, the setting up of this Com¬
mittee was a result. Notwithstanding this background, we had, in Part I of
our Report, shown that over the last decade or so, the incidence of accidents
had been showing a steady and uniform decline. We endeavoured to bring
into perspective the fact that over the past decade or so, the measure of
safety in rail travel had, if anything, registered an improvement. Here, once
again, we consider it fair to state that the record of safety of rail travel on
the Indian Railways must be judged in the context of the task that the
Railways are called upon to perform. The net work of the Indian Railways
spreads over nearly 59,000 route kilometres. In fact, taking the multiple
lines, yards and sidings into account, the track length is about 96,000 kilo¬
metres. The traffic density in certain parts of the Railway system is amongst
the highest in the world, the throughput on a number of sections exceeding
10,000 tonnes of freight per day an a on some over 30,000 tonnes per day
besides heavy passenger traffic. In fact, the highest density—on one or two
sections of the Eastern Railway—surpasses the figure of 70,000 tonnes. More
than 10,000 trains speed out daily or which nearly half are passenger trains.
To run these, the Indian Railways deploy a fleet of approximately 12,000
locomotives, some 38,000 coaches and over 360,000 wagons. Over 1.3 mil¬
lion railwaymen toil to perform this gigantic task. This is indeed a sizeable
scale of operations and it is in this context that, rightly, the failures and
shortcomings of the Railways in any field—and particularly that of safety-
have to be judged. The wide canvas of railway operation must be kept in
view when we observe that on an average, during the years 1963-64 to
1967-68, some 77 train collisions and 1,000 train derailments took place an¬
nually. The object of presenting this picture is to stress that any sweeping
generalisations which may be drawn from our observations on specific
issues, itemised for the sake of clarity, in the first part of our Report or in
this would be unjustified.

3. At the same time, we do not of course wish these remarks to be mis¬
construed or taken to mean that all is well and that nothing further re¬
mains to be done to promote safety in rail travel. Firstly, the speeds on the
Indian Railways when compared with those in several advanced countries
are comparatively low. In Japan, a speed exceeding 200 kilometres per hour
has already been attained and in the United Kingdom research and trials

are in hand to develop speeds upto 240 kilometres per hour. It is generally
accepted that the rate of increase in wear and tear is proportionate to the
square of the increase in speeds. Secondly, the axle loads on most sections
ol the Indian Railways are low as compared to the railways in other indus¬
trialised countries. With increased axle loads and more intensive operation,
the need for attention to the maintenance of track and rolling stock would
be greater. The future picture may, therefore, necessitate a higher degree
of safety precautions ana consciousness than at present. In this context,
safety in rail travel is a matter in which the quest will have to be an un¬
ending one and the goals such as may be seemingly unattainable. In Part I
of our Report, the scope of our examination was necessarily circumscribed
by the first of our terms of reference which called upon us to make an ap¬
praisal of the action taken on the Kunzru Committee’s recommendations.
Even so, we had occasion to point out instances in which the action suggest¬
ed by the Kunzru Committee six years ago had either not been taken or
inadequately accomplished and to indicate directions in which the pace of
implementation needed to be accelerated. In the paragraphs which follow,
we shall endeavour to indicate certain further directions, the action along
which ought, in our view, to lead to a still greater degree of safety in train
operation.

4. We have, it would be seen, devoted a good bit of this Part of the
Report to .matters concerning staff. As we had pointed out in Part I of our
Report, a substantial number of accidents in all categories is traced to the
human element whether it takes the form of forgetfulness, misjudgement,
or sheer carelessness. With the rapid development in techniques in recent
times, this problem comes to the fore. It is evident that no device aimed
at eliminating failure of the human element can be proof altogether against
human fallibility. Indeed, elaborate safety devices may "sometimes defeat
their own object by inducing too great a reliance in them at the expense of
human vigilance”. Some recent accidents are excellent examples of how a
combination of circumstances and of errors by a group of people acting in
unison can set at naught the very best schemes devised to guard against the
possibility of mishaps. “In the last analysis”, says L.T.C. Rolt, the well
known British author in his work 'Red for Danger’ which is a chronicle of
railway accidents in the United Kingdom over the past century cor so, "rail¬
way safety still depends as it has always done, upon the skill and vigilance
of the railwaymen”. Notwithstanding the use of modern technological
safety devices, the steps which the Railway administration may take not
only to instil a higher degree of safety consciousness in its men but also to
raise the general level of morale and keep the sense of duty pitched at a
high level will, it is our firm belief, pay rich dividends.

5. It is, perhaps, necessary to state here that at first sight some of our
recommendations in the pages that follow may seem to lack any direct con¬
nection with the subject of safety. Matters, fox instance, like the authority
of supervisors, the role of trade unions, the impact of the functioning of the
Vigilance organisation on the morale of railwaymen, or the system of pro
curement of stores and spares, none of which has any direct bearing on
accidents may indeed not seem germane to the subject matter of accidents.
The lay reader, finding that we have covered such matters, may well think
that we have strayed beyond the legitimate field of study set out for us by
our terms of reference. To this lay reader, a work of explanation is rightly
due.

6. From the very outset we were dear in our minds that if we were to
confine ourselves merely to the more direct causes as brought out in the
accident enquiry reports our study of the subject would necessarily be
superficial and we would be doing less than justice to the railway staff, to
ourselves and to those who had entrusted us with this task, and that it
behoved us to address ourselves to the more deep-rooted factors which even
though largely latent do, ih the course of time, give rise to conditions which
cumulatively have the effect of eroding whatever makes for organisational
and individual efficiency. Organisational efficiency and individual efficiency
inevitably react on each other and any drop in one or, both would get re¬
flected in the output of any enterprise quantitatively as well as qualitatively;
and in an enterprise like the railways tne qualitative impact would assured
ly be on the safety of rail travel. Indeed we had visualised this at the begin¬
ning of our labours and had put this to the Minister of Railways in our
first meeting with him. The Minister had been good enough to accept this
point of view readily and had agreed that our investigations may cover all
matters which the Committee felt had relevance to the problem of safety.
It was against this background and understanding that we went into
matters whose link with train operation though seemingly indirect is.
nevertheless, in our view of a basic character. To these matters and parti¬
cularly the aspects concerning the human element as viewed from a wider
perspective, we attach the utmost importance. We are convinced that to
the extent to which the railway administration is able to locate and remedy
the factors—whether latent or apparent, remote or direct—which give rise
to failure of the human element, to that extent a greater measure of safety
in rail travel would follow.

7. In saying this, we wish to reiterate what the Kunzru Committee had
said in regard to the cost of accidents. These costs are not merely the direct
monetary losses suffered by the Railways and the public in an accident but
also include the indirect costs resulting from the delay and dislocation of
traffic, the diversion of the attention of the administration from their normal
duties in respect of train operation and the money, time and attention spent
on the inquiries whether conducted departmentally or by Additional Com
missioners of Railway Safety or by Commissions of Inquiry, To these costs
must be added the sufferings of the victims of accidents and the loss of the
fair name of the railways which cannot be reckoned in terms of money. We
record this here with a view to striking a note of caution against exaggerat¬
ed notions of economy which on occasions are apt to assail not merely the
railways but even other enterprises.

8. The suggestions contained in the subsequent chapters, it may be
observed, emanate primarily as a result of our visits to and inspections of
a wide cross-section of railway installations including production units,
workshops, locomotive and EMU sheds, sick lines, level crossings, sections of
the track, bridges, cabins, signalling devices, control offices, marshalling
yards, running rooms and training schools on all zonal Railways and our
talks with railwaymen at all levels and of nearly every category. A list of
the places and installations visited and of the persons interviewed appears
in the Appendix. The ideas which emerged from these visits and talks
needed discussion with the technical and administrative heads of the zonal
Railways and the production units and with the Railway Board. The Com
mittee were also fortunate in having the advantage of detailed discussions
with Col. D. McMullen, till recently Chief Inspecting Officer of Railways of
the British Ministry of Transport who visited India early this year at the

invitation of the Committee extended through the Railway Board. A num¬
ber of former senior Railway officers also gave the Committee the benefit of
their experience and mature advice. Wherever technical and other data
were available, the suggestions which took shape were correlated to such
data. The views expressed and the recommendations made by us have been
evolved after sifting the data furnished by the Railway administrations, a
■study of the evidence collected and on-the-spot checks made in the different
fields of railway working combined with the elucidations which the higher
echelons of the Railway administrations and the Railway Board furnished
to us. We wish to make it clear, however, that no share of the responsibility
for these observations and recommendations devolves on any individual who
might have given us the benefit of his views.

Chapter II

THE HUMAN ELEMENT

9. Significance of the human dement —The analysis of accidents dur¬
ing the last many years contained in Part I of our Report had borne out
amply that a large number of accidents is caused directly by failure of the
human element. Even out of the remaining, a good number can be traced
indirectly to the failure of staff to carry out properly their duties of main¬
tenance of track, engines, rolling stock or signals. Mechanical devices and
safeguards which the railway administration employs in its various fields of
operation are primarily intended to guard against such failures. Needless to
say, every mechanical device or safeguard has still to rely for its operation
or maintenance on the human mind and hand; and unless such mechanical
devices and safeguards are operated in the prescribed manner, not only do
they become ineffective but on the other hand, their improper operation
and maintenance may, at times, endanger safety. It is- in this realisation that
we approach the subject of the human element from its various angles.

10. Indeed this subject is so wide and many-sided that it may be diffi¬
cult to lay down parameters and say with any degree-of certainty that the
aspects beyond those parameters have no bearing on safety. Take for in¬
stance the question oi discipline of staff. For one thing there is no known
barometer of the level of discipline. Even if some empirical method were
to be found to measure the level of discipline, we will still be faced with
another difficulty namely the extent to which this factor has a correlation-
ship with the proneness to cause accidents. We realise these limitations and
have accordingly striven to avoid the temptation of getting involved in such
exercises as are largely academic in character. Instead, we have preferred to
address ourselves to the practical aspects of these matters which in our view
fall legitimately within our field of study. In any group of men got together
to perform a certain task, unless the standards of service discipline are of a
high order, the corporate effort would gradually weaken ana each man's
laxity will react on the other; the eventual result in any enterprise would
be indifferent but in a field of work like railway operation where corporate
effort is of the very essence it would be attended with hazard. Understand'
ably, therefore, we have devoted attention to the factors which make for
indiscipline and the ways and means to revitalise the sense of discipline.
The same processes of thought apply to other subjects like the training of
staff, the welfare organisation, the morale of executives and supervisors, the
functioning of Vigilance, the housing accommodation for staff, their duty
hours and so on with which we deal in this and the succeeding chapters. At
the close of this chapter, we also make a brief reference to the large volume
of infructuous paper work which has come to be a routine in the working
in railway offices and show how by weeding this out, the attention of the
administration and the staff can be channelled in more fruitful directions
which would not only make railway travel safer but more efficient.

Discipline and morale of stiff

11. Factors affecting discipline—discipline and safely —In reply to a
questionnaire which we had addressed to them, all the Railway administra¬
tions stated unanimously that there has been a definite deterioration in
discipline among the staff during the recent years. They all agreed that lack
of discipline among the staff impairs the efficiency of workers in day-to-day
working and in turn affects the safety of train operation.

12. Among the reasons which the Railways sei out for the decline in
discipline and which find support from the evidence which was led before
us during the course of our tours the more important are: —

(i) The general decline in the law and order situation in the coun¬
try and the lack of respect for authority which has found an echo
on the railways as well.

(ii) Interference by politicians. Members of Parliament and State
Legislatures and influential members of the public in the day-to-
day running of the administration which tends to undermine
the self-confidence of the executives on the one hand and respect
for authority amongst the men on the other.

(iii) The present manner of the functioning of certain sections of the
trade unions which tends to foster a spirit of defiance of autho¬
rity among the staff.

(iv) Reluctance on the part of supervisors to take action against de¬
faulting members of the staff which is borne out of a sense of
frustration and insecurity widely prevalent among the supervi¬
sors.

(v) Inadequate personal contact and understanding between the
officers and other supervisory categories and the staff in their
charge. This is ascribed inter alia to a highly inadequate ratio
between officers and supervisors on the one hand and between
supervisors and the staff on the other.

(vi) The existing disciplinary procedures which are cumbersome and
time-consuming and are not conducive to the taking of prompt
and deterrent action.

13. We would like to refer here to a counter argument which was ad¬
vanced during the course of evidence led before us. If it is true that discip¬
line has declined, how, it was asked, is it that the safety record of the railway
administration over the past few years has been showing a steady and uni¬
form improvement and furthermore even the overall performance of the
railways from the point of view of the operating efficiency achieved and the
additional traffic carried has registered an improvement? The argument, we
concede, is not without substance. The answer however was provided by one
of the Railways in its reply to the questionnaire. This Railway observed
that despite the decline in discipline over the years the Railway administra¬
tion has been able to perform its task fairly effectively by dint of a core of
dedicated workers imbued with a high sense of responsibility. This Rail¬
way, however, warned that this core of dedicated workers is fast shrinking
and is being called upon to take on a much larger share of the burden of
work than is humanly possible for it to carry. Unless the for ces at work that
undermine discipline, this Railway went on to say, are arrested in time and
ihe deterioration in discipline is checked, the functioning of the railways
might run into real peril jeopardising both efficiency ana safety. Wc con¬
sider that this is a correct appraisal of the situation and could hardly have
been described more aptly. Ihe conclusion which emerges and which we
are disposed to accept as valid is that while the Railway administrations
and their core of dedicated workers have striven hard to increase the
measure of safety and to improve their performance generally, the position
would have been better and the level of safety and efficiency even higher but
for the factors which have affected discipline adversely.

14. Factor affecting morale o/ officers and supervisors —With one soli¬
tary exception, all the Railways, in their replies to*the questionnaire, en¬
dorsed the view that the morale of officers and of supervisory officials in
general has suffered a serious decline in recent years. This description of the
state of affairs found overwhelming support from the oral evidence of officers
and supervisors at all levels. One of the Railways, however, holds the view
that there has been no fall in the morale of officers. Even this Railway con¬
cedes that the efficiency and independent outlook of officers is often condi¬
tioned by outside interference and senior supervisors have the feeling that
they are not effective. For this decline in morale, a variety of reasons have
been set forth, the more important of which are summed up below: —

(i) A feeling of insecurity which has taken strong roots amongst
officers and supervisors due to the manner of investigation of
their actions by the Vigilance department, the Special Police
Establishment, etc. They have a feeling that even the legitimate
exercise of discretion can come in for questioning long after it
was exercised. Even officers of established integrity are not free
from this fear and feel that they can be subjected to harassment
and persecution.

(ii) In addition there is a sense of insecurity amongst officers and
supervisors to the effect that if any one of them gets into diffi¬
culty in the legitimate discharge of his duties, there is no one
to help him and there is general apathy and lack of support
from those above him. The feeling has also grown that they are
not trusted sufficiently as men on the spot should be.

(iii) There is a widespread feeling among officers and supervisors that
their status and grades and avenues of promotion are not com¬
mensurate with the workload and responsibilities which they
have to shoulder, particularly vis-a-vis their counterparts else¬
where.

(iv) A sense of frustration all round amongst officers and
supervisors generated by a feeling of lack of purpose in their
work. Most of them feel that though they are overburdened with
paperwork there is a sense of total lack of achievement.

(v) A feeling of discontent among supervisors arising frofn' the pre¬
sent procedure of reservation of posts for scheduled castes and
tribes particularly at the stage of promotion to selection posts.

15. In general, it may be stated that factors which generate indiscip¬
line among the staff have an effect on the morale of the executives; what¬
ever engenders one makes for erosion of the other. We, therefore, propose to
deal with the twin problems of discipline and morale together under the
following heads; —

(i) Trade Unions;

(n) Welfare Organisation—its objectives and functions;

(tii) The effect or outside interference;

(iv) The role of the Vigilance Organisation;

(v) Disciplinary procedures;

(vi) Status and grades of supervisors;

(vii) Reservation of posts for scheduled castes and tribes;

viii) The calibre ana position of officers;

(ix) Officer-staff and supervisor-staff ratio; and

(x) The burden of paperwork.

frade Unions

18, Functioning of trade unions —On the role which the trade unions
on the railways play in safeguarding the interests of staff, the Railway ad¬
ministrations have given divergent assessments. Some of the Railways stated
that the trade unions have generally played a useful role in this behalf and
have contributed to industrial peace. All these Railways, however, stressed
that the unions should be encouraged to believe that negotiation rather
than adjudication is the way to improve service conditions and that unions
would do well to play the role of inculcating duty consciousness and a sense
of discipline in. the rank and file of staff.

17. Some other Railways, however, do not share this view. They con¬
sider that the role played by the trade unions on the railways has been un¬
fortunate and that the unions have been fighting only for rights and pri¬
vileges ignoring the fact that the employees have some obligations too.
According to these Railways the trade unions are never disposed to accept
the decisions of the administrations which are unfavourable and keep on
raising the same matter over and over again violating the spirit of the
negotiating machinery. Furthermore, the unions are prone to raise subjects
which are expressly excluded from the purview of discussions such as cases
affecting individual members of staff and cases of disciplinary action against
errant employees. Since in many instances, the unions are, in the end, able
to achieve success in the cases which they sponsor, right or wrong, this has
the further effect, it was stated, of eroding respect for authority.

18. While we recognise that the main function of the trade unions is
to protect the interests of the staff and strive for better working conditions
for them, we feel that the unions have an equally vital role to play in in¬
culcating duty consciousness and a sense of discipline in the rank and file
of the staff. It may be that certain sections of the trade unions have not
played this vital role successfully. We on our part consider it necessary to
emphasise the importance of the dual role which the trade unions are ex¬
pected to perform and express the hope that this would receive due atten¬
tion of the office bearers and the members of the unions.

19. Plurality of trade unions —-Nearly all the Railways expressed the
view that the existence of more than one union on a Railway makes the
unions adopt irrational and illogical views because of inter-union rivalry.
In such a situation, the unions cease to deal with various issues on their
merits and instead direct their efforts mainly at gaining control over the
men. As one Railway put it, each vies with the other in playing to the
labour gallery. Apart from this, multiplicity of unions means corresponding¬
ly more interference in the day-to-day working of the administration, divid¬
ed loyalty, lack of harmony and often friction amongst the different groups
of staff belonging to different unions thus adversely affecting the interests of
the staff apart from its inevitable impact on discipline. The Railways were,
therefore, of the unanimous view that there should be only one union on
each Railway for all the staff and that this would enable the unions to ap¬
proach controversial issues in a more rational manner and would impart
to the unions more bargaining strength.

20. During the evidence tendered before the Committee, one General
Manager and some other officers favoured the existence of more than one
union. They expressed the opinion that two unions act as a balancing factor
against each other and that tf there were one union it may make it difficult
for the administration to function smoothly.

21. Barring such isolated opinions, however, the general consensus of
evidence of railway officers and supervisors at all levels endorsed the view
that plurality of trade unions creates difficulties. In their view, a single union
on each Railway would provide an answer to the problem, since all the
workers would have to come to one union for the redress of their grievances
and the union would not have to waste its energies in competing for votes
with rival unions. These views were also endorsed by a retired Chairman
and a retired Member of the Railway Board. Even the representatives of the
National Federation of Indian Railwaymen favoured the idea of having one
recognised union on each Railway on the basis of tire verified strength of
membership of the unions.

22. We have carefully considered the pros and cons of having more than
one recognised union of workers on each Railway and consider that not
only from the point of view of discipline among staff and the functioning
of the administration but also of the workers themselves, it is advantageous
that there should be only one recognised employees’ union on each Railway
with a recognised federation at the apex. Indeed, the advantage of this has
been demonstrated since the derecognition of the second union on many
of the Railways after the illegal strike of September 1968. In our tours on
the various Railways, we were told by most of the witnesses including the
workers themselves that industrial peace has been strengthened since that
time and the level of discipline has distinctly improved. We would recom¬
mend to the Ministry of Railways to explore ways and means whereby re¬
cognition is given to only one trade union on each of the Railways.

23. Outsiders as union office-bearers —In the Railway administrations'
view which finds support in the consensus of evidence tendered before us,
the participation of outsiders as office bearers of the unions exposes them to
the influence, often unscrupulous, of political parties, retards the growth of
a healthy trade union movement on tne railways and is a source of positive
hindrance to the smooth working both of the trade unions and the Railway
administration. The Railways, therefore, advocated that the law should be
amended to debar outsiders from becoming office bearers of the unions. A
retired Chairman and some retired Members of the Railway Board were of
the view that only serving employees should be allowed to run the unions
since only thus would the employees have a feeling of belonging to the
unions and would be amenable to reason.

24. The representatives of the National Federation of Indian Railway-
men during their evidence suggested that the question should be left to be
decided by railwaymen themselves and that the question of doing away with
outsiders would arise only when it is felt that the present procedure is
detrimental to the interests of the trade union movement.

25. Having considered the views expressed by the various Railway ad¬
ministrations and also the opinions expressed by the various parties in their
evidence, we feel convinced that the present system leaves scope for non-
railwaymen with political leanings and alignments with different political
parties to gain control over the trade unions and direct the movement more
with the aim of furthering their political ends than in the interest of the
trade union movement. We wonder if the time has not come when railway-
men in India can competently manage the affairs of their unions and effec¬
tively represent their case .in negotiations. If necessary they can take the
help of salaried persons on their staff and of paid advisers and consultants.
But actual leadership including all office bearers should come from the
railwaymen themselves. This process would be facilitated and accelerated
r I/J’(N)3M of Railway

if the Railway administrations create a sense of security among their em¬
ployees who function as office bearers or enter into negotiations with them.
The problem, we understand, is already under detailed consideration in a
wider context by the National Commission on Labour and we, therefore,
desist from making any concrete recommendations on this point.

26. Sectional ( category-wise) unions —We received various representa¬
tions both in the course of our tours and in our secretariat on behalf of cer¬
tain sectional bodies representing different categories of railway staff and
urging recognition to their unions. Without encumbering ourselves with
the question of the aptness of dealing with unrecognised unions, we agreed
to listen to their point of view. Having listened to them and considering
other evidence adduced before us, it became clear to us that small groups
of staff in various categories form their own so-called sectional unions and
the office bearers of such unions push forward matters of various sorts for
discussion with the administration. Several officers told us that even though
such unions have not been recognised, consideration of representations put
forward by them results in the loss of a lot of time. Often there are dashes
of interest among them. We are therefore convinced that if the trade union
movement on the railways has to grow along healthy lines, there is no place
for sectional or category-wise unions in the movement. The union of workers
on each Railway should embrace all categories. If there are problems of a
sectional nature it is for the union to have its own sectional divisions and
to synthesise the interests of the various groups in the union instead of the
various sectional groups speaking with different voices. We, therefore, wel¬
come the policy adopted both by the Railway administrations and the
recognised unions on the Railways of not favouring recognition of sectional
unions.

27. Supervisors as members of the unions —Qn the question whether
supervisors should be permitted to be members of trade unions of workers
whose work they are required to supervise on behalf of the administration,
the majority of the Railway administrations expressed themselves as defi¬
nitely not in favour. It was stated on behalf of the Railways that these
supervisors are the eyes and ears of the administration and in case they
throw in their lot with the rank and file of workers, they would be unable
to function effectively as an instrument to enforce discipline and their value
to the administration would diminish. A retired Chairman of the Railway
Board expressed the view that it is wrong to permit inspectors and supervi¬
sors to be members of the unions since they are part of the management.

28. The opposing view-point was expressed by two Railways who
favoured the procedure of supervisors being allowed to become members of
the unions. In their view, the leadership in trade unions, at present, emerges
from the senior supervisors and if they are debarred from joining the trade
unions the leadership of the trade unions is likely to pass into less responsible
hands.

29. Unfortunately the actual experience of the trade union movement
on the Railways does not confirm this view. In practice, it is found that
supervisory staff join the trade union movement not so much to guide their
deliberations as to ingratiate themselves with the workers out of a sense
of insecurity or for advancing their personal interests. The unfortunate
feeling of not belonging to the management leads them onto such a course.
This alone in our view accounts for the fact that a considerable number of
supervisors on each Railway are members of the trade unions even though
from the point of view of their service interests, there is little in common

between them and the workers in their charge. We had called for informa¬
tion from the Railway administrations in regard to the number of persons
in supervisory posts in grades Rs. 250—380 and above who are members (or
were members prior to September 1968) of recognised trade unions. Only
four Railways were able to furnish the requisite information in this behalf
and we reproduce this below:

Railway

Total number of
persons in super¬
visory posts in
grades Rs. 250—
380 or above

Total number
out (2) who are
(or were prior to
Sept. 1968) mem¬
bers of recognised
trade unions

■Northern

3,300

350

North Eawtevu

1,845

385

Northeast. Frontier

1,454

1.047

Woutwu

2,881

2,321

Taking the information furnished by the four Railways as representative,
it is obvious that a significant number of supervisors are at present mem¬
bers of the recognised (or erstwhile* recognised) unions.

30. We consider that such a situation does good neither to the trade
union movement nor to supervisors. Nor are we convinced that in the
absence of supervisors, the rank and file of workers would not be able to
throw up the right type of leadership for the unions. We consider that the
time has come when the law on the subject should be suitably amended so
as to debar certain categories of senior supervisors from joining the trade
unions of workers. It is our view* that staff in senior supervisory posts draw¬
ing gross emoluments of Rs. 500 per month or above should not be allowed
to become members of recognised unions of railway workers.

31. An Association for supervisory categories —These senior super¬
visors are limbs of the management and like any other category of staff
would no doubt need a suitable forum to represent their difficulties and
where necessary to take up matters of common interest to them with the
higher echelons of the administration on their behalf. Having expressed
ourselves against such supervisors becoming members of recognised trade
unions, we would favour one separate association on each Rauway with a
Federation at the apex for all such supervisory categories which should
receive due recognition of the railway administration and the respect which
is due to it as a body of men who represent the eyes and ears of the ad¬
ministration in the field. Since supervisory staff as junior members of
management cannot obviously be allowed to resort to the weapon of strike,
it is desirable that some machinery in the nature of arbitration should be
instituted by which collective problems concerning such staff which cannot
otherwise be resolved should be dealt with.

Welfare Organisation

32. Trade unions sponsoring cases of individual staff —We had while
referring to the functioning of trade unions remarked that the unions often
urge cases affecting individual members of staff even though such subjects

are expressly excluded from the purview of discussion. The plea advanced
by the unions for not refraining from taking up such matters is that the
welfare of staff is the primary objective of a trade union and that these
matters affecting as they do the welfare of individual staff should rightly be
within their purview.

33. With a view to ascertain to what extent the unions occupy them¬
selves with such matters, we had asked the Railways to furnish figures of
cases of individuals pertaining to transfers, promotions, selections, punish¬
ments, leave, increments and other allowances etc. as also of matters of a
policy nature which had been raised by the trade unions during the year
1967-68 and the first six months (ending September 1968) of the year 1968-69.
The figures furnished by the Railways make interesting reading and we
reproduce these at Annexure I. The overall picture which emerges is as
under: —

(») Total number of individual eases of all categories of
staff sponsored by trade unions regarding -.

1967-68

*1968-69
*(For six mon¬
ths upto Sept¬
ember,
1968)

(a) Transfers ..

8,162

1,530

(b) Promotions'

1,703

959

(d) Punishments in

538

252

(i) accidents ouses . .

225

(it) other cases

1,423

795

(e) Leave

1,362

735

(f) Increments, pay, allowances and other payments

20,261

9,952

(g) Other cases

11,611

5,380 -

Total

(it) Total number of cases on policy matters sponsored by

40,165

19,696

trade Unions ..

7,486

3,330

(tit) Grand Total ..

47,651

23,026

(iv) Percentage of item ( i) to (tit)

84-3

85-5

(v) Percentage of item (it) to {in)

14-7

14-5

34. It will be seen that for every reference of a policy nature, brought
up by the trade unions, there were five to six references pertaining to indi¬
viduals which the unions have been sponsoring.

35. We would indeed have deplored in strong terms this usage of the
unions sponsoring individual cases as also of the Railway administrations
allowing a long rope to the unions by entertaining such cases but for the
fact that we also found from the information furnished by the Railways in
this behalf that in nearly 85 to 90 per cent of the cases of individuals spon¬
sored by the unions, the Railway administrations on examination either re¬
dressed the grievances or found that they merited redress. We had, by way
of a sample, called for information pertaining to only two categories of
staff, namely the station staff and the driving staff. The data has been
analysed according to the nature of grievances (which were the subject
matter of cases of individual members of staff brought up by the trade
unions) under (a) confirmation or fixing of pav or seniority or promotion,
(b) sanctioning of increments, (c) payment of arrears of pay, allowances
etc., (d) sanctioning of Provident Fund loans etc., (c) granting of loans,

(fj issue of passes and P.T.Os, and (g) sanctioning of pension or payment
of pension or Provident Fund. We find that in nearly 85 to 90 per cent
of cases, the Railway administrations found that the cases of grievances
brought up by the trade unions merited redress. Of a total of 17,851 such
cases which the unions sponsored in the 18 months ending September 1968,
15,408 were either redressed by the time the information was furnished to
the Committee or had been found to be meriting redress. Separate
statements pertaining to station staff and driving staff, as furnished by the
Railways are at Annexures II and III.

36. It will also be seen from these statements that of the grievances
which figured most among the cases sponsored by the trade unions, both in
respect of station staff and of driving staff, the top three places are taken
by (i) payment of arrears of pay, allowances etc., (ii) sanctioning of incre¬
ments and (iii) confirmation of fixing of pay or seniority or promotion, in
this order. This we consider doubly unfortunate since a properly managed
Personnel Branch, even if it were not welfare oriented, ought certainly to
be able to take care of these matters so that the staff do not have occasion
to complain, much less feel the need of channelising these matters through
the trade unions. We have no doubt that in many of such instances, the
staff resorted to representation through the trade unions after they had lost
hope of getting what was due to them through normal channels. This,
therefore, brings us to the question of an organisation within the railway
administration to attend to such matters.

37. The Existing Welfare Organisations on the Railways —Each
Railway Administration has an organisation called the ‘Welfare Organisa¬
tion’ whose duties among other things consist in bringing to the notice of
the proper authorities the genuine difficulties and grievances of the staff
and to help to resolve them expeditiously. The Welfare Organisation is
under the overall charge of the Chief Personnel Officer who is assisted by a
Personnel Officer (Welfare) and Welfare Inspectors at the headquarters
office. On the divisions and in the workshops, the Divisional Personnel
Officers and the Assistant Personnel Officers look after welfare activities
and are assisted by Welfare Inspectors. Besides attending to grievances, the
Welfare Organisation is required to keep a watch on the proper function¬
ing of various schemes and establishments set up for the welfare of staff as
for example railway hospitals, schools, institutes, canteens etc. They are
also expected to encourage thrift among the staff and to promote Co¬
operative Societies as well as sports, scouting and youth movements. In
reply to a questionnaire which we addressed to the Railways, a number of
Railways stated that the existing set-up of the Welfare Organisation is in¬
adequate to fulfil the various objectives and functions set for it. One Rail¬
way suggested that the activities of the Welfare Inspectors should be widen¬
ed so that the staff could look forward for advice, guidance and help even in
personal affairs. Another Railway thought that the image of a Welfare In¬
spector to the staff should be that of a “benevolent somebody in the
Organisation”, to whom the staff could look up to bring sympathy and
justice.

38. These are all laudable objectives and we wish the position were
so; but confining ourselves, for the present, to the removal of genuine grie¬
vances, we have seen that the role played by the Welfare Organisation has
evidently been ineffective. No wonder, therefore, the Welfare Organisation
has not succeeded in bringing contentment to the employees in so far as the
redress of their individual grievances is concerned. Were the existing Wel¬
fare Organisation able to cope with the task of redressing the gunuine
grievances and difficulties of the staff, they would not only justify their

existence but what is more important would make the staff on the line feel
that there is someone to attend to their difficulties and that the administra¬
tion is not an impersonal unsympathetic structure but one anxious to give
them their due.

39. Welfare bureaux oj a new pattern —It was, therefore, a refreshing
experience for us when we were explained or shown the working of some
revitalised welfare bureaux in some of the divisions of the Railways parti
cularly Asansol, Kharagpur and Baroda. We were gratified to see the keen
interest the Divisional Superintendents were personally taking in them.
The broad features of the revitalised welfare organisation in these divisions
were more or less common, namely, that any member of the staff who had
a grievance or difficulty whether in respect of payment of dues or issue of
passes or sanction of leave etc. could come to the counter of a well
appointed tidy-looking Welfare Bureau where neatly dressed, attentive
looking Welfare Inspectors and staff attended to them immediately. On
registering the grievance, the Welfare Inspector at the desk would set
about finding the position in regard to the grievance or difficulty from the
Branch concerned. The employees would either get the final reply the same
day or an interim reply and an assurance that a reply would follow within
five days or a week. The matter would thereafter be followed up until it
was finalised. The Divisional Superintendents told us that the assurance
given was fulfilled and that they personally watched the position.

40. In our discussions with the Board, we were told that this new
pattern of the Welfare Bureaux has been set as a model to be adopted or
even improved upon by all the divisions and the idea has caught up firmly
and is being established. This is indeed heartening and we hope that the
time will soon come when the staff all along the line feel that if they have
some grievance or difficulty, it is the Welfare Inspector to whom they should
address it.

41. Training of Welfare Inspectors —We might add here that one of
the Railways had stated that orientation training to the Welfare Inspectors
is very essential and that this orientation should include the philosophy of
welfare, a study of human resources, working of group activities, the essen¬
tial aspects of labour legislation and establishment rules. The Railway also
suggested to us that in this matter, the assistance of Institutes like the
Tata Institute of Social Sciences and the Labour Institute at Bombay and
other experts in the field of Welfare and personnel management should be
freely sought. We hope the Railway has succeeded in giving a concrete shape
to the scheme which is visualised. We commend to the authorities the im¬
parting of such orientation to the Welfare Inspectors so that they are able
to accomplish what their functional designation implies.

The e[feet of outside interference

42. We had in Part I of our Report occasion to mention that inter¬
ference by outsiders in day-to-day working is a source of considerable
frustration and lack of self confidence amongst executive officers, and had
stated that factors like this inevitably tell on the morale of officers and their
disposition to take right decisions. In the course of our tours we found
overwhelming evidence of large-scale outside interference in day-to day de¬
cisions pertaining to transfers, promotions, postings, seniority, fixing of pay
and other routine matters which acknowledgedly ought to be outside the

sphere of influence of politicians. When such interference becomes a com¬
mon occurrence known to yield results, the staff come to believe that secur¬
ing the assistance of an influential outsider is the only means available to
obtain what they are aiming at instead of looking up to their immediate
superior; on the other hand the executive officer who is, in his day-to-day
work called upon to take routine decisions of this nature has a feeling that
even the most bonafide of his decisions may be called in question and set
aside if it is unpalatable to a member of the staff having influential connec¬
tions. This state of affairs has thus the dual effect of creating indiscipline
in the staff on one hand and a decline in the morale of executive officers on
the other.

43. As to the extent to which outside interference has permeated the
domain of staff management on railways, we received ample demonstration
when on a day on which we were to record the evidence of a Divisional
Superintendent of a certain Railway, this officer showed us three letters
which he had received in the day s dak from his headquarters office. These
three letters were dockets of three communications, from Members of
Parliament addressed to the Ministers of Railways seeking their interven¬
tion in matters like transfer of an assistant station master and some other
paltry matters. The Ministers apparently had, in each of the three cases,
asked for report and in due course the letters had trickled down to the
Divisional Superintendent asking for ‘immediate attention' and report.
The Divisional Superintendent complained that such matters were strictly
within the competence of his officers and ousicle interference of this nature,
by loading the officers with such infructuous work, prevented them from
carrying out their supervisory duties. He further told us that there was
nothing unusual about his having received three letters on one day and
that he received similar communications often.

44. Even in our discussion with the Board, this story was repeated to
us and we were told that some 900 letters or so were received from Mem¬
bers of Parliament every month on matters of transfers, promotions, etc.
which the Board had to look into. A retired General Manager while refer¬
ring to this phenomenon stated that “incredible things are done in this
way and unless the Minister has the backing of his constituency he would
not be able to stand up to this”.

45. We have no doubt in our mind that the authors of these communi¬
cation whether Members of Parliament or other public figures, do so
without realising the repercussion of their intervention on the discipline of
staff and the morale of officers. Nonetheless the evidence which we have
referred to speaks volumes for the magnitude of the problem.

46. The Kunzru Committee had expressed the hope that Members of
Parliament would bear this in mind and do what they can to promote dis¬
cipline. Much as we would like to cherish similar hopes, we find it hard
to be optimistic that Members of Parliament would abstain from writing
to officials at all levels on matters concerning individual members of staff.
Even assuming that some Members of Parliament mav heed our appeal,
we do not think the dimensions of the problem would be much reduced.
We would therefore like to go a step further and appeal to the Ministers
that they should do all they can to withstand such pressures and endeavour
to insulate the officers within their charge from outside influence. We have
every hope that the Minister of Railways would be equally anxious to sus¬
tain the morale of his officers and would set precedents whereby such inter¬
cessions are eliminated.

It.

47. It would, w consider, be a healthy practice if the Minister of
Railways were to lay on the table of both Houses of Parliament every quar¬
ter a statement giving the details about letters and representations of this
nature received by him from Members of Parliament and indicating what,
if any, action has been taken on them.

48. A more radical and fundamental method of eliminating political
influence in such matters may be to convert the Railway Board into an
autonomous statutory corporation as is the case in the United Kingdom.
It is not, however, within the purview of thi s Committee to investigate
into the pros and cons of this proposal and to pronounce on its desirability.

The Role of the Vigilance Organisation

49. Impact of Vigilance on the initiative of the executives —At the out¬
set, we would like to .observe that of all the matters having a bearing on
the subject of morale, the one subject on which the evidence of railway
officers and senior supervisors has been the most overwhelming and un¬
reserved is the functioning of the Vigilance organisation and its impact on
the sense of self-confidence of the executives in the field and their decision¬
making process.

50. It is unnecessary for us to recount the evidence which was tendered
before us by all categories of officers from General Managers down to senior
supervisors. It was stated almost universally that the Vigilance organisation
■ as it functions today has the effect of killing or at least considerably weaken¬
ing the initiative and disposition to take the right decisions, creating a fear
complex, a general shirking of responsibility all around and a tendency to
pass the buck upwards. The Vigilance-surcharged atmosphere, we were in¬
formed, compels officers and supervisors to play safe at any cost, including
that of efficiency and to the detriment of the best interests of the Railway
administration.

51. A General Manager put it in these words: “The whole philosophy

of Vigilance is based on distrust even at the highest level and this is tending
to make the administration static and rule-bound; the functioning of the
organisation is hardly .serving any purpose. It leads to little progress or
residts. Efficiency is going down and everybody is trying to save his skin
and is shirking responsibility.’’ Another General Manager observed that
the Vigilance organisation in the present form is ‘an unmitigated evil’ and
“.the sooner it is scrapped, the better it would be.”

52. The representatives of the Federation of Class I Railway Officers’
Association stated in their evidence that quite apart from the fact that
those involved in Vigilance investigations undergo a lot of indignities and
mental and financial strains, even in cases where the investigations bring out
nothing unfavourable, the officer remains under a cloud until the Central
Vigilance Commission has endorsed the clearance. It often takes two or
three years before the officer is finally exonerated but in the process the harm
it has done cannot thereafter be undone. “In these conditions”, the Federa¬
tion went on to say, “the Railway Administration cannot be expected to
produce results.”

53. In saying all this, we are, if anything, understating what came out
in evidence. Metaphors like ‘Gestapo’, ‘cancer’, ‘octopus’, ’wolf’ were used
by some very responsible witnesses in likening the functioning of Vigilance.
We deem it fair to state that these witnesses had not distinguished them¬
selves by the use of intemperate expression when tendering their evidence on
matters other than Vigilance, but when it came to Vigilance, their voices
were charged with agitation and a perceptible quiver which we did not fail
to note

54. This universal feeling received equally strong support from the
evidence of a retired Chairman and several retired Members of the Rail¬
way Board. Even in our discussions with the Railway Board, we found that
they were in complete agreement with the views expressed by officers and
they did not mince words.

55. The thing that surprised us further was that the feeling of extreme
insecurity which the working of the Vigilance organisation has engendered
has permeated down even to the lowest level. A wayside station master told
us that even at the time he is doing line-clear working, he has a lurking fear
that somebody might he watching him and might catch him on some
trumped up charge. Some Permanent Way Inspectors told us that not
infrequently, Inspectors of the Vigilance department (and at times even of
the Special Police Establishment) come and swoop down on them without
notice and start checking up their stores and other things. They make en¬
quiries of various sorts from the Class IV stall subordinate to them posted
in and around the place. After the Vigilance batch had gone, a PWI told
us, he heard nothing about the matter for months, but the worry and the
disgrace remained. Another PWI told us that a trolly accident was caused
through inattention due to worry on this score.

56. It is against this mass of denunciatory evidence that we felt called
upon to have the version of a senior spokesman each of the Vigilance side
and of the Special Police Establishment. Curiously, the spokesman of the
Vigilance side maintained] that the working of Vigilance is in no way res¬
ponsible for the loss of morale and that the Vigilance organisation helps
the officers who are otherwise overburdened to carry out preventive checks
and to that extent it helps them to do their job better and to raise their
morale. The spokesman of the Special Police Establishment, in his evidence
took the position that any talk that the functioning of his Establishment has
the effect of demoralising the officers is nothing but "propaganda done by
dishonest officers”. When w'e told him of the surprise checks which the teams
of the Special Police Establishment make on the activities of the supervisors
on the Railways and asked him on what basis the checks were
made, he told us that though the Act of Parliament undei which the
Special Police Establishment was set up did not provide for any such
checks, some preventive checks had been made off and on by his men. He,
however, told us that such preventive checks had since been stopped and
the Special Police Establishment now- confine their activities only to investi¬
gations.

57. Frankly, we remain quite unconvinced with the logic of the spokes¬
men of the Vigilance side and of the Special Police Establishment. In our
view, if what they stated is not a routine departmental defence, the onlv
interpretation that we can place on it is that it reflects a total unawareness
of reality.

58. We also considered it appropriate to go into the question of the
relationship between the Vigilance wing of the Railway Board and the
Central Vigilance Commission which was constituted under a Resolution of
the Government of India. We find that while according to this Resolution,
the Central Vigilance Commission has jurisdiction and powers in respect of
all public servants who may be suspected of or alleged to have acted for an
improper or corrupt purpose, by convention the Central Vigilance Commis¬
sion confines itself to cases involving only gazetted officers. In respect of
officers, however, we were told that all cases relating to officers in which in¬
vestigations have been made must go to the Central Vigilance Commission
for opinion even if the investigations have prima facie brought out nothing.
Once a case has been registered for investigation against an officer, it cannot
be closed until the Central Vigilance Commission has endorsed the op.nion
of the Ministry that the investigations have not brought out anything
actionable. Should the investigation reveal anything actionable, the Central
Vigilance Commission also determines whether a charge-sheet is to be issued
to an officer and whether it should be for a major or a minor penalty.
Furthermore, should the Central Vigilance Commission recommend an in¬
quiry, such inquiry is ordinarily made by a Commissioner of Departmental
Inquiries who is usually someone with no background of the railways.
Eventually, when the competent authority decides to impose a penalty on
an officer, it is done with the concurrence of the Central Vigilance Commis¬
sion. It has been provided that should the Government not accept any of
the recommendations of the Central Vigilance Commission the latter would
incorporate this in its annual report to the Ministry of Home Affairs who in
turn are required to lay it before each House of Parliament. In practice,
there has been no case in which a recommendation made by the Central
Vigilance Commission has not been accepted by the Government.

59. With such wide coverage and powers, it is not difficult to see that
there should be inevitable delays in the handling of cases in the office of the
Central Vigilance Commission. We were told that even in cases where
nothing prima facie has been found, it sometimes takes months before the
Central Vigilance Commission can give its clearance. In many cases, there
have been much longer delays. Meanwhile, according to the existing pro¬
cedure. any officer against whom an investigation has started, is debarred
from promotion if due and cannot be empanelled for a higher appointment.
If such an officer were due to retire, the retirement benefits are withheld.
Furthermore, no matter how discretely and confidentially these investiga¬
tions may be conducted, it soon becomes common knowledge that investi¬
gations are proceeding against the officer. Having thus come under a cloud,
the officer is thereafter unable to function effectively which is hardly sur¬
prising. Even if eventually such an officer is cleared, the psychological damage
done to him is permanent and irretrievable.

60. What is stated in the above paragraphs is for officers who may be
actually involved in Vigilance cases; but no less damage is being caused to
the others who may not be so involved actually. In the present conditions,
unless an officer has extraordinary grit, he is reluctant to act on his own
responsibility even where the rules provide for discretion and he endeavours
wherever possible either to switch on the responsibility to a colleague or a
superior or at least share the responsibility with others. Engineering officers
show hesitation in working out a settlement of disputed matters with the
contractors lest motives should be imputed to them and instead prefer sug¬
gesting the course of arbitration which results in disputes remaining un¬
settled for long durations. Stores officers prefer not to exercise their power

1 !)

of direct purchase from the market even in an emergency and prefer calling
for tenders and involving a number of officers including a representative of
Finance in the transaction. “Pass the buck” and ‘‘Save your skin” have thus
become the overriding precepts in utter disregard of the interests of the ad¬
ministration.

61. A highly unfortunate though a less known feature of Vigilance in
its present form has been the deployment of a group of so called ‘‘sources”
who operate as informers of the Vigilance department. Needless to say, the
Vigilance department does not flourish on information supplied by persons
having the noblest of motives. Mostly persons frustrated m their own pro¬
fession and with unscrupulous, spiteful and other sinister motives put on
the garb of informers. What is worse, such individuals are often employed
to shadow officers and staff incognito. For an officer, the thought that he may
be shadowed by such characters is demoralising enough. In fact, according
to the information available with us, a good number of informers of the
Vigilance department are from among the Railway staff and some who are
outsiders function as regular professional ‘sources’.

(]2. The system of informers makes a mockery of the so-called directive
which we were told, the Vigilance Organisation strictly follows, namely,
that no notice should be taken of anonymous or pseudonymous complaints.
If an individual can remain incognito and yet place himself in such a posi¬
tion that the Vigilance department will act on the information supplied by
him, we do not see what is achieved by ordaining that no notice would be
taken of anonymous complaints.

63. Internal Vigilance versus outside ‘policing ’—The commonly under¬
stood and generally accepted connotation of the word ‘Vigilance’ as applying
to the working of public servants is the prevention of corrupt practices
and maintenance of high standards of personal integrity. Even among those
who denounced the working of Vigilance in strong terms, it was no one's
case that corruption or other malpractices do not exist or should not be put
down with a heavyhand. On the contrary, evert witness from top to bottom
with whom we discussed this subject, stated with one voice that not only
must their own actions be above board but it is their duly to ensure that
every one in their charge maintains the highest standards of integrity in all
official dealings. What they, however, complained against was that whereas
Vigilance, in the real sense of the term, should be built into the organisa¬
tion and every head of department and every senior officer should be the
Vigilance head of his own department or branch, what has happened is that
a body had grown from outside and had gained a stranglehold over the rail¬
way organisation. Investigations against the staff now get started without
the knowledge of the controlling officers and against officers, often without
the knowledge of the General Manager, or the Member of the Board con¬
cerned. By the time the controlling officer, the General Manager or the
Member of the Board concerned come to know of this, it is too late to
undo the damage that has been done.

64. The Vigilance organisation in its present form owes its existence to
the recommendations made by the Santhanam Committee. The terms of
reference of this Committee did not have particular reference to the Rail
ways. The Committee had nonetheless devoted special attention to the work
ing of Vigilance on the Railways and had gone on to suggest a vast Vigilance
set up including a Member (Vigilance) on the Railway Board itself. Even¬
tually. the organisation in the Railways which emerged as a result of these

recommendations was an Additional Member, Vigilance (now called the
Director General, Vigilance) assisted by a number of Joint Directors, Deputy
Directors, Assistant Directors, Officers on Special Duty, etc. The Director
General (Vigilance) though nominally under Member Staff, Railway
Hoard, in effect directs the whole of the organisation and exercises control
over the Vigilance wings of the Railway administrations.

ID. Prior to the recommendations of the Santhanam Committee, the
anti-corruption work on the Railways was mostly an internal matter. The
Kripalani Committee on Corruption in the Railways had in its Report ob¬
served as under: —

“Officers at the top should be made to realise that their duty does not
end by merely being above board themselves. It is also part of
their duty to see that the staff working under them are efficient
and honest.”

(iti. In other words tire prevailing thought until the Santhanam Com-
mittee’s Report came was that Vigilance was something inherent in an orga¬
nisation and that the Railway administration and the respective Heads of
various Departments were required to be the Vigilance officers of their
organisations. Once this scheme of things was disturbed and ‘Vigilance’,
instead of being an internal organ, took on the role of “policing”, as a very
senior representative of tfie Railway organisation described it, things became
diff erent. This officer told us in his evidence that even "Manusmiriti provides
for corruption and how to deal with it. There are certain inbuilt checks in

the administration. But you are trying to build a new organisation—

another organisation which has come up and is called Vigilance.”

(17. Here then is an organisation in which an employee’s controlling
officer has no say in the matter, in which the head of the department is not
consulted when an investigation is taken in hand against a responsible
supervisor and in which a case begins to be built up against an officer who
may have put in long and loyal service on the complaint of an unscrupulous
informer without the General Manager and the Member of the Railway
Board concerned being taken into confidence. We have little doubt in our
minds that whatever little good such an organisation may have accomplished
in isolated cases would indeed be hardly a speck against the enormous harm
which it has succeeded in doing all around.

68. We have been at considerable pains to set out the background in
which the question of functioning of Vigilance engaged our attention and
having expressed our misgivings about its role in its present form, we can¬
not help observing that without any further loss of time, steps should be
taken by the Government to undo the damage which has been done by this
highly ill-conceived plan of action which it might have once been thought
would root out corruption but which instead is throttling the healthy orga¬
nism of the Railways. We would suggest action along the following lines: —

(i) While nothing must be left undone to root out corruption, in
whichever quarter it may exist, it should be understood that this
duty devolves squarely on the Railway administration itself and
not on any organisation which has the semblance of an outside
policing organisation. It equally devolves on the administration
to protect honest and innocent officials from allegations by un¬
scrupulous persons who may be nurturing grievances against their
superiors or fellow workers.

(ii) No investigation should be taken in hand against any tailway
official, including a gazetted officer, without the concurrence of
the Head of the branch or of the organisat on corresponding to
the status of the official against whom there is a complaint. While
we would like to leave the procedure in this behalf to be settled
by the Railway administration, we would, as a broad guide line,
suggest that for a class III employee other than a senior super¬
visor, the concurrence of, the Divisional Superintendent (or an
authority of an equivalent rank in the case of other than the
divisional employees) should be obtained. For investigations
against a senior supervisor, the prior concurrence of the Head
of the Department concerned should be taken. In respect of an
officer working on a Railway administration, the General Mana¬
ger should be taken into confidence besides obtaining the con¬
currence of the Member of the Railway Board concerned. In
seeking such concurrence, all the material available on the basis
of which the case for investigation is sought to be made out
should be placed before the competent authority and if the latter
after considering the material finds that there is no case for in¬
vestigation, the matter should not be pursued further and the
discretion so exercised should not ordinarily be questioned.

(iii) While we commend the directive that no notice must be taken
of anonymous or pseudonymous complaints, we are of the view
that the purpose behind this directive is set at naught by initiat¬
ing investigations on ‘source’ information. We deprecate the
practice of accepting such information. Such information should,
except in extraordinary cirmumstances, not be given any cre¬
dence. Only in very exceptional circumstances and that too when
the authority competent to give concurrence for initiating investi¬
gation has personally satisfied himself as to the antecedents and
motives of the informer may notice be taken of such informa
tion.

• (iv) In the Railway Board, the Directorate of Vigilance should be
headed bv a railwayman of considerable experience and proved
integrity who should have the rank of a Director functioning
directly under the Member Staff. We do not consider that there
is any justification for the post of Director General (Vigilance).

(v) In the Vigilance organisation, both in the Railway Board’s office
and in the Railway administrations, the lower officers and in
spectors should all be railwavmen having excellent record and
reputation for integrity and a flair for investigation. In our view,
the police inspectors and officers who have little knowledge of
railway working and who, in an organisation like the Railways
would have problems of adjustment, do not have any utility in
the Vigilance organisation.

(vi) We welcome the assurance given to us by the representative of
the Special PoFce Establishment that preventive checks not based
on anv specific complaints have been discontinued. We wish to
record that such checks do not serve any purpose and if these
have been discontinued, these should not be reviewed.

60. In the end. we would like to commend for the consideration of the
Central Vigilance Commission a thought which we have no doubt would be

received by that authority in the spirit in which it is offered. We would sug¬
gest a self-imposed ordinance by the Central Vigilance Commission that only
cases of officers in the Senior Administrative grade and above should be
scrutinised by the Commission. Cases of other officers should be left to be
dealt with by the Ministry of Railways themselves. Such a course, we are
sure, would enable the Central Vigilance Commission to give closer and
more prompt attention to the cases handled by it. This would also, as¬
suredly, go to build up'the morale of railway officers.

Disciplinary Procedure

70. In Part I of our Report we had stated that the present disciplinary
procedure based on Article 311 of the Constitution is by its nature cumber¬
some and time-consuming. The evidence which we heard in the course of
our tours highlighted this fact and it was repeatedly urged before ug that
the procedure for taking disciplinary action should be simplified so as to
make it possible to mete out prompt and deterrent punishment to errant
employees.

71. It was suggested in the course of evidence that the railway staff
should be treated on a par with the defence personnel and should be sub¬
jected to military discipline and rules, that action arising out of accident
cases should be processed on a summary basis, and that the erstwhile rule
in the Establishment Code (R.I. 149) which empowered the General Manager
to discharge a ra'lway employee by giving a month’s notice—a rule which
had been struck down by the Supreme Court—should be restored.

72. We, therefore, had a close look at the Discipline and Appeal Rules
and at Article 311 of the Constitution on which these are founded. These
rules aim at providing adequate opportunity to the employee along the
lines envisaged in Article 311 before any of the major penalties can be im¬
posed on him. To go into the history and growth of the protection which
the concept ‘adequate and reasonable opportunity’ affords and which in due
course came to be enshrined in our Constitution would be of interest.

73. The growth of Article 311 of the Constitution —Going back some
fifty years ago, the relevant provisions governing civil servants were set out
in Section 96(B) of the Government of India Act, 1915 (as amended in 1919)
and read as under: —

“96B(1) Subject to the provisions of this Act and of rules made there¬
under, every person in the civil service of the Crown in India
holds office during His Majesty’s pleasure, and may be employ¬
ed in any manner required by a proper authority within the
scope of his dutv, but no person in that service may be dismis¬
sed by any authority subordinate to that by which he was
appointed, and the Secretary of State in Council may (except
so far as he may provide by rules to the contrary) reinstate any
person in that service who has been dismissed.”

# # * #

(2) The Secretary of State in Council may make rules for regulat¬
ing the classification of the civil services in India, the methods
of their recruitment, their conditions of service, pay and
allowances, and discipline and conduct. Such rules may, to such
extent and in respect of such matters as may be prescribed,
delegate the power of making rules to the Governor-General in
Council or to local governments, or authorise the Indian
legislature or local legislatures to make laws regulating the
public services.”

74. 7’he effect of this provision was that even while the English Com¬
mon Law whereby every government employee held office during the Crown s
pleasure was statutorily recognised, he could not be dismissed by an authority
subordinate to that by which he had been appointed. Moreover, the proviso
"subject to the provisions of the Act and the rules made theruender” occur¬
ring at the commencement of the Section provided a further protection
guaranteed by the rules issued from time to time. Rule 55 of the 1930
Classification Rules issued in pursuance of the said Act provided that no
order of dismissal, removal from service or reduction in rank could be pass¬
ed on a member of a service (other than an order passed on facts which had
led to his conviction in a Criminal Court or by a Court Martial) unless he
had been informed in writing of the grounds on which it was proposed to
take action and had been afforded an adequate opportunity of defending
himself.

75. It may here be observed that railway servants were as a class gov¬
erned by a separate set of rules collected in two volumes of the Indian
Railways Establishment Code. These were, however, similar to and in terms
pari materia with, the 1930 Classification Rules.

76. Then came the Government of India Act, 1935. Of this, section 240
provided as under:

"240(1) Except as expressly provided by this Act, every person who is a
member of a civil service of the Crown in India, or holds any
civil post under the Crown in India, holds office during His
Majesty’s pleasure.

(2) No such person as aforesaid shall be dismissed from the service
of His Majesty by any authority subordinate to that by which
he was appointed.

(3) No such person as aforesaid shall be dismissed or reduced in
rank until he has been given a reasonable opportunity of show¬
ing cause against the action proposed to be taken in regard to
him.”

77. A comparative reading of the relevant provisions of the 1915 Act
and the 1935 Act would show that the latter Act not only maintained the
earlier guarantee that no government servant would be dismissed by an
authority subordinate to that by which he had been appointed, but went
a step further and gave statutory shape to the affording of ‘reasonable
oppor tunity’ to the employee which until then had been governed merely
by subsidiary rules,

78. It is noteworthy here that whereas the rules had prior to 1935
laid down that the employee must be afforded adequate opportunity of
defending himself, the provisions of the 1935 Act laid down, ‘that a reason¬
able opportunity of showing cause against the action proposed to be taken’
must be given to the employee. This thus made the issue of notice to show
cause against the proposed punishment to the accused employee a statu¬
tory obligation.

79. Finally, in 1950, came our Constitution. The provisions of
Article 310(1) and 311(1) and (2) which are relevant for this purpose and
which correspond to Section 240 of the 1935 Act are as under:

"310. TenuYe of office of person serving the Union or a State —(1) Ex¬
cept as expressly provided for by this Constitution, every per¬
son who is a member of a defence service or of a civil service of

the Union or of an all-India service or holds any post connected
with defence or any civil post under the Union, holds office
during the pleasure of the President, and every person who is a
member of a civil service of a State or holds any civil post under
a State, holds office during the pleasure of the Governor of the
State.

* * •

“311. Dismissal, removal or reduction in rank of persons employed in
civil capacities under the Union or a State —(]) No person who
is a member of a civil service of the Union or an all-India
service or a civil service of a State or holds a civil post under the
Union or a State shall be dismissed or removed by an authority
subordinate to that by which he was appointed.

(2) No such person as aforesaid shall be dismissed or removed
or reduced in rank except after an inquiry in which he has
been informed of the charges against him and given a reason¬
able opportunity of being heard in respect of those charges and
where it is proposed, after such inquiry, to impose on him any
such penalty, until he has been given a reasonable opportunity
of making representation on the penalty proposed, but only on
the basis of the evidence adduced during such inquiry."

80. Two things are noteworthy on a reading of these Articles. Firstly,
whereas Article 310 refers to various services including defence service,
Article 311 omits mention of def ence service. Secondly, Article 311(2) states
that before penalty of dismissal or removal from service or reduction in
rank can be imposed on a government employee as defined therein, three
separate provisions must be fulfilled, namely

(a) that there shall be an inquiry in which the person is to be in¬
formed of the charges against him;

(b) that he must be given a reasonable opportunity of being heard
in respect of those charges; and

government servant, he would again be ‘given a reasonable
opportunity of making representation on the penalty proposed.

81. This Article, thus, integrates three steps—two of which were pro¬
vided for by Rule 55 of Classification Rules read under Section 96(B) of
the 1915 Act [namely (a) to be informed of the charges and (b) to be given
adequate opportunity of defending himself] and the third provided for
under Sub-section 3 of Section 240 of the 1935 Act (namely, to be afforded
a reasonable opportunity to represent against the penalty proposed which
in common parlance is called answer to a show-cause notice^.

82. In effect, the opportunity available to an accused employee gets
crystallised into the following three distinct stages;

(a) A notice embodying the statement of charges based on a set of
allegations, is served on the employee and the employee’s ex¬
planation thereto is obtained.

(b) Depending on whether the employee denies any Or all the
charges, evidence is recorded including cross-examination by
the accused employee. This is followed by his own statement
and his defence.

At this stage, the inquiry officer draws up his findings and
sends them to the competent authority.

(c) Notice is issued to the accused employee informing him of the
proposed punishment which the competent authority may ten¬
tatively decide upon. Answer is given by the accused employee
to this notice. Not until these three stages have passed can
punishment be finally inflicted on the accused employee.

83. Needless to say, this involves a long procedure more particularly
when in observance of thy procedure the accused gets opportunities of
inspecting all relevant documents, of being accompanied by a helper during
the recording of evidence and oral hearing and at the stage of show-cause
notice of being provided with a complete record of the inquiry proceedings,
and the inquiry officer’s report.

84. Here it would be interesting to compare this with the procedure
in a criminal trial in a law court. There the charge-sheet is served on an
accused who is called upon to plead guilty or otherwise. In case he denies
the charges, evidence is taken. This is followed by statement of the accused
under Section 342 of the Criminal Procedure Code and his defence, if. any.
Thereafter, the presiding officer prbnounces his judgement and it the
accused is found guilty, also the punishment.

85. * A comparison of the two will’ show that whereas in a court of law,
a person accused of an offence gets an opportunity to present his defence
only once even while the punishment in such a trial may be imprisonment,
in departmental proceedings the government official is given two opportu¬
nities. The object of mentioning this is merely to show that departmental
proceedings can be tortuous and time-consuming.

86. From the discussion about the evolution of the procedure for de¬
partmental action in the preceding paragraphs, two important conclusions
emerge—manifestly at cross purposes with each other. Firstly, the pro*
cedure is firmly founded on certain basic rights conferred on an employee
which have not only become time-honoured but are now enshrined in our
Constitution. With Article 311 as it stands, even while there may be some
scope to streamline the procedural frills through administrative alacrity,
(to which we had referred in para 327 pf Part I of our Report) the mam
fabric of the procedure which is designed to guard the. obligations caat by
the Article does not lend itself to any perceptible abridgement. Secondly,
belated action against the erring employee, long after the event, becomes
ineffective. Even in cases where the responsibility of an employee in, causing
an accident is beyond doubt (where he should normally be placid under
suspension) the quasi-judicial complexion of the procedure contributes
towards delay in'" the award of punishment, which in Consequence loses its
purpose.

87 This then is the dilema. That there is need to evolve a more effec¬
tive system of fixing of responsibility and meting out punishment for
delinquency is clear. There can be no two opinions about the needJpr
prompt and deterrent action against a person guilty of negiigapWem
dangering safety of the travelling auWiM«kt*Btesent proceduc^hdw^vci
b/J(N)SofB«ilwa}- 4

drawing strength as it does from Article SI 1 of the Constitution, is apt to
set limitations on efforts to achieve the objective pf swift and deterrent
punishment for an act of delinquency resulting in a railway accident.

88. We were told by a representative of the Railway Board that efforts
had been made at the highest level to explore the possibility of amending
the Constitution so as to make it possible to deal with the errant railway
staff connected with the movement of trains in an expeditious manner but
such a course did not find favour.

89. It was urged before us that the Railways 1 in the country have a
place of their own. In times of crisis they assume an importance second to
none including the defence services. Even in normal times they are the
arteries of the nation grownig from strength to strength. Railwaymen today,
and more particularly those who are directly connected with the safe run¬
ning of trams, thus more .than ever constitute a class by themselves because
of the nature of their work,and the serious consequences that follpw from
any negligence iti the discharge of their duties. Anything which may tend
to weaken the sense of discipline in the vast body of railvyaymen or to bring
about conditions whereby negligence in the discharge of their duties may
be glossed over needs to be eschewed. It is in this light that the case for
exclusion of the vast body of the railwaymen—particularly those connected
with the safe running of trains—from the purview of Article 811 of the
Constitution is put forward.

90. The other side of the picture, and which indeed has considerable
validity, is that even while serious consequences may have flowed from an
act of amission or commission of a railwayman, it still remains a case of
negligence in the performance of one’s duty and that the mere fact that the
nature of consequences from two different acts of omission and commission
may differ can hardly justify depriving a public servant whose negligence
may have resulted in serious consequences, of adequate and reasonable
opportunity which Article 311 of our Constitution bestows. After all it is
not on purpose that a driver drives against a signal or an assistant station
master receives a {rain on a blocked line. If it could be established that the
action of the employee was purposive or deliberate there would be other
legal provisions to deal with the employee. But as things are, the act of
omission or commission of a.public servant which may result in an accident
cannot in fairppss be treated on a plane different from any other act of
omission or commission of a public'sen ant which may not result in similar
consequences.

91. We would, in consideration of these various factors and of the
fact that what is provided for in Article 311 of the Constitution is a time-
honoured protection, abstain from recommending that Article ,311 of the
Constitution be amerided.

92. Yet, we do not see Why any 'penalties which are not referred to in
Article 311 of the Constitution should be treated as major penalties for
which an equally laborious procedure is prescribed. We find from the Dis¬
cipline and Appeal Rules as applicable to railway staff that at least two
other penalties, namely (i) reduction to a lower stage in the time scale of
pay for a specified period and (ii) compulsory retirement, are shown as
major penalties for which the entire gamut of the complex procedure has
to be followed. It has also come to oiir notice that recently the Railway
Board have, apparently at 1 the instance'of the. Ministry of Home, Affairs,
prescribed that the penalty wtmiolding of increment, whenever it is

likely to affect adversely the pensionary benefits or when such penahy is
for a period exceeding three years or with cumulative effect should also be
treated on the same footing as a major penalty. Whatever might have been
the compulsions for doing so, this deviation obviously does not derive
strength from the Constitution. Particularly when the Railway Board and
the Railway administrations have been laying so much stress oq amending
the disciplinary procedure and have even gone to the extent of advocating
an amendment of the Constitution, we do not see why the penalties not
provided for in Article 311 of the Constitution should be so-treated in the
Railway Servants Discipline and Appeal Rules. We would urge the. Rail¬
way Board to take immediate action so that for the imposition of penal¬
ties other than those provided for in the Constitution, a summary mid
simplified procedure ts adopted.

93. For the rest, we would reiterate that wherever there is scope for
eliminating delays in the processing of cases of disciplinary action in de¬
partmental offices, such delays should be eliminated and the procedure for
watching the progress of such cases in departmental offices streamlined.

94. Special Inquiry Officers —An important reason for delays in finali¬
sation of departmental proceedings which came to our notice ip that the
executive officers who arc otherwise preoccupied with their work are
burdened with the task of holding disciplinary inquiries. At times, even
a committee consisting of more than one officer is appointed to hold such
an inquiry. The fact that the officer or officers are not relieved of their nor¬
mal duties while conducting the inquiry and where the number of officers
is more than one, they have to find dates mutually convenient often results
in delays. Furthermore, not all the officers are conversant with the com¬
plexity of disciplinary procedure.

95. Taking into account all these difficulties, it occurs to us that the
disciplinary inquiry could, with advantage, be conducted by officers trained
and deputed exclusively for this purpose. These officers should form a part
of the Personnel Branch and should be chosen with due care so that they
have a good knowledge of the Discipline and Appeal Rules and where
possible also some knowledge of law as well as legal procedures. Not en¬
cumbered with other routine duties these officers would be in a position
to give their undivided attention to the work of conducting the inquiries.
The Personnel Branch of each division can, wherever required, be suitably
strengthened for this purpose. We had discussed this proposal informally
with some General Managers and the Railway Board and we found the
proposal generally acceptable.

Status and grades of supervisors

96. Loss of self-confidence among supervisors —During our tours of the'
various Railways and discussions with the Heads of the administrations
and other senior officers it was repeatedly pointed out to us that while
supervisors have a vital role to play in the efficient and smooth functioning
of the Railways, their status, prestige and authority have suffered greatly
in recent years; they have generally become ineffective and a feeling of
helplessness and frustration has overcome most of them. They feel that they
are not able to take work from the staff or to enforce discipline. Cases of
manhandling, assaults or intimidation of supervisors at the hands of the
employees themselves or their agents were related to us and the evidence
pointed to the fact that the administration had not been able to provide
adequate security or legal assistance.

90. A retired Chairman of the Railway Board, in his evidence be¬
fore us, pointed out that among the most unfortunate things which have
happened in recent years one is that the quality of supervisors has greatly
deteriorated and that today the weakest link in the administrative chain
is the senior supervisor, A retired Member of the Railway Board stated
that the supervisory staff have lost heart and that they find it extremely
difficult to pull up t'he staff.

98. The Railways, in their reply to the questionnaire, stated almost
unanimously that the authority of senior supervisors has greatly weakened.
Some stated that they do not possess adequate powers for taking discip¬
linary action against the staff. Others held the view that they are reluctant
to* exercise whatever disciplinary powers are already delegated to them.
Some Railways pointed out that supervisors have a feeling that they would
not get adequate support from those above them in case complaints arise
against them because of their anxiety to get work done. One Railway
stated that the supervisors’ inability to enforce discipline is primarily be¬
cause of the spirit of indiscipline fostered among the workers by the unions.
By and large, according to this Railway, supervisors are still a disciplined
force on the Railways and that it is not too late to rebuild their authority
and rehabilitate their position.

99. Among the suggestions given by the Railways to restore their autho¬
rity, one Railway stated that supervisors should have a say in the promo¬
tion of staff working under them and that such a course would induce the
workers to be loyal to their superiors. Another Railway suggested that
senior supervisors should be authorised to write the confidential reports
of the staff under them. Another suggestion was that a system of “rating”
for the good work done by the staff should be introduced wherein the super¬
visors allot marks for work and discipline every month on the same pattern
as on the French Railways. A representative of the Railway Board was of
the view that powers to inflict certain punishments like reduction by one
stage, stoppage of increments, etc. on errant Class III staff may be delegated
to senior supervisors. He, however, added that the real thing is that they
should be encouraged to use such powers where required. A retired
Member of the Railway Board suggested that if a supervisor gives an order
such order should ordinarily be supported by his superiors.

100. Practically all the Railways drew pointed attention to the fact

that senior supervisors today have inadequate scales of pay and poor pros¬
pects of promotion, and advocated a revision of their pay scales and a
review of the channels of promotion. They said that the present scales of
pay of supervisors are not commensurate with their workload and
responsibilities and th^t for want of adequate channels, of promotion
there is great stagnation. One Railway pointed out that there is disinclina¬
tion at times on the part of certain categories of staff to accept promo¬
tion as inspectors because often it results in loss of emoluments, as for
instance in the case of a driver being promoted as inspector. All these
factors therefore combine to take away the motivation for efficient and
conscientious supervision. The Federation of Class I Officers’ Associations
endorsed these views and strongly advocated steps to raise the emoluments
of supervisory categories. -

101. Our attention was also drawn to the fact that in a number of
instances workmen get higher emoluments than their supervisors, more
particularly as a result of the incentive scheme in the workshops. This,
it was pointed out, on the one hand encourages indiscipline on the part
of staff and on the other makes it difficult to draw suitable men to fill up

the supervisory posts.

102. Yet another point which came to our notice was that at present
there are a large number of grades of supervisors. Most of these grades
are overlapping inasmuch as the top of one grade is well above the bottom
of the next higher grade. The net result of this is that even where a super¬
visor in a certain grade gets promotion he hardly ever gets any substantial -
increase in emoluments. Usually all that happens is that he is fixed at the
appropriate stage in the next higher grade and the net increase in emolu¬
ments is but a small amount. .

. . 103. The enquiries which we made in regard to the existing scales of
pay of supervisory categories revealed considerable multiplicity of grades.

It was pointed out to us that in course of time, the number of grades has
gone up. forever, whereas previously all or most of the grades of in¬
spectors were selection grades with a real emphasis on selection, in course
of time, in a number of these grades, seniority-cum-suitability has been
injected as the basis. In general, alternate grades have selection or seniority-
cum-suitability as their basis.

104. On this aspect a retired Member of the Board pointed out that
over the last 20 to 2a years more and more supervisory grades have become
seniority-cum-suitability grades instead of / selection grades. The trade unions
also usually throw their weight in favour of the seniority-cum-suitability
basis. In consequence even where the fitness of a person is marginal, there
are reasonable chances of promotion. This has had the result of making it
increasingly difficult for outstanding persons to supersede others and come
up and occupy higher positions out of turn.

105. We are entirely in agreement with the Railway administrations
that to strengthen the measure and quality of supervision over the working
erf staff, it is essential that the position and authority of senior supervisors
should be restored. Earlier in this chapter we have already recommended
that senior supervisors should be recognised as junior members of manage¬
ment and that their organisation in separate associations should be
fostered. We would offer the following further suggestions for considera¬
tion : —

(i) It is desirable that senior supervisors are always consulted in
regard to the promotions'and transfers of staff uj their charge.
This will not only be a step in the right direction inasmuch as
the supervisors who know the men in their charge and their
capabilities most closely would be in a position to help the
administration to match the men with their jobs but will also
lead a great deal to the strengthening of discipline and respect
for supervisors among the staff.

(ii) The number of grades of senior supervisors should be reduced.
As far as possible, most of the grades of senior supervisors should
be selection grades. They should be so devised that the top of.
one grade is well below the starting point of the next grade so
that when a person is promoted to the next grade he gets a
substantial rise ih emoluments. The present grades were last
considered by the Second Pay Commission a decade ago. It is
not for this -Committee to go into the details of the grades or
to suggest a wholesale review since rightly, this should be dealt
with by a future Pay Commission, but as an interim measure
we would like to suggest that the topmost grade of senior super¬
visors should be appropriately raised keeping in view preset^
day conditions as also the scales of senior supervisors m com¬
parable posts elsewhere.

,'iii) TO improve the status of senior supervisors* to impart them
greater self-confidence and to broaden their channels erf promo
tion, we consider that wherever there is a large concentration
of staff working under a senior supervisor, the post should be
upgraded to gazetted status, Class IL Here, we might point out
that the General Mana«r of one Railway had put forth this
point very forcefully and stated that he had examined this ques
tion in detail. According to him, the expenditure involved in
the implementation of such a scheme would be marginal and
the enlargement of the Class II cadre would not create any diffi
culties in the form of blockage in promotion to Class I Service
as most of the senior supervisors who would rise to Class II
posts on this basis would retire during the period of Class II
Service. And yet this would greatly build up their status and
self-confidence and would enable them to exercise their discipli¬
nary powers in a more effective manner. We would leave it to
the Railway Board to work out the implications of this scheme
in consultation with the Railway administrations. As a broad
guideline, we suggest that wherever there is a concentration of
say 300 to 300 men, the status of supervisors should be raised
to Class II. In suggesting this, we wish to emphasise that it
would be unfortunate if by implementing such a recommenda¬
tion, all that happens is that good supervisors are replaced by
indifferent officers. We would, therefore, stress that special care
is taken in selecting the right type of men whenever it is decided
to upgrade the posts of senior supervisors to Class II category.
It would also, in our view, be inadvisable to change the desig¬
nation of say a Foreman to an Assistant Mechanical Engineer
or of a Yard Master to Assistant Operating Superintendent when
upgrading some of the posts as such a step is from a psychologi¬
cal point of view likely to give an impression to the incumbent
as ff the nature of his job and responsibilities is altered. It
would in our view be advisable to retain the present designa¬
tions. If at all any modification is called for, we recommend
that for the sake of uniformity the upgraded posts may be desig¬
nated as Yard Superintendent, Shop Superintendent, Loco
Superintendent, Station Superintendent etc.

(iv) The only way we can think of whereby senior supervisors can be
encouraged to exercise the disciplinary powers delegated to them
more effectively wherever called for is to support the action oi
senior supervisors unless there are good and sufficient reason*
to the contrary. The most constructive step in fortifying the
self-confidence of senior supervisors and discipline among stall
would, in our view, be to create conditions whereby it becomes
known right down the line that the action taken by the super
visors on the spot will ordinarily receive the support of th<
administration.

Reservation of posts for scheduled aastes and scheduled tribes

106. In the course of evidence tendered before us, it was pointed oul
that among the factors responsible for the discontent among supervisors,
one was the present procedure of reservation of posts for scheduled castes
and scheduled tribes. Such reservation, we were told, adversely affects the
enthusiasm, incentive for hard work and devotion to duty and in turn
the efficiency and morale of supervisory staff.

107. Wp; find that jthc principle, ©( reservation of post* for scheduled
castes and scheduled tribes operates hot/only at the stage of initial recruit¬
ment but also in respect of vacancies which) are filled by promotion, as a
result of a positive act of sekctipn, The orders, of the Ministry ©f Home
Affairs extending the principle of resecration of vacancies for scheduled
castes and scheduled tribes to all grades which are filled by promotion
through competitive examination limited to. departmental candidates were
made applicable on, the Railways in 1959. More recently, on receipt of
recommendations of the Yardi Committee, the Government reviewed the
position and it was. djffcided to provide reservation quotas for scheduled
castes and scheduled tribes in promotion to, all selection posts in y/Jiich
the element of direct recruitment docs not exceed 50 per cent. It-was also
decided to extend the reseryarion to promotions from Class HI to Class II
filled on the basis of examination limited to departmental candidates, the
percentage erf reservation being 12J fqr scheduled castes and. 5 for
scheduled tribes, that i^, the same percentage as applies fori reservation at
the level of initial recruitment.

108. In die implementation of the derision'to fill the reserved vacan-
*cies at the promotion' level, weigh tage in favour of candidates belonging
to scheduled castes and scheduled fribes is given in various ways. For
instance, in promotion by selection from Class III to Class II, a scheduled
caste or scheduled tribe employee rated as 'good’ by the Selection Com¬
mittee is equated to the employees rated "very good"; and if such a candi¬
date is rated ‘very good’ by: the Selection Committee, he is equated to others
who are rated as "outstanding. Similarly, in respect of promotions to
selection posts in Class III, wheteas for; all .other candidates the Qualifying
marts tinder “professional ability” are 30 out of 50, for scheduled' castes
and scheduled tribes, the qualifying marts are 25 out of 50. In other
words, in order to improve the representation of scheduled castes and
tribes in posts filled by selection, the qualifying standards are lowered.

109. We have given thought to the question of reservation of posts
and the weigh tage for scheduled castes and scheduled tribes in the pro¬
motion vacancies. It is true that Article 16(iv) of the Constitution permits
such reservations with a view to giving adequate representation to the rela¬
tively backward communities in the society. We are also aware that the
principle of reservation of promotion vacancies was upheld by the Supreme
Court The provision in the Constitution and the pronouncement of the
Supreme Court show the concern and sympathy for scheduled castes and
scheduled tribes. These, however, have necessarily to be counter-balanced
with the need for maintaining the efficiency of the administration at a
reasonable level. It must be appreciated that reservations for a community
or a group of people must not be at the cost of overall efficiency of the
administration.

110. We were adVised by the‘Railway Roard that the Railways have
been issued instructions, not to relax standards in favour pf scheduled
castes and scheduled tribes wl^fre safety is involved/We welcome this assur¬
ance but we feel that ,in actual practice, ,it rnfiy be impracticable to abide
by these instructions duet: the 'exiht'^to wh^h the various posts have a
bearing on safety in train operation relay ript be uniformly, apparent At
the stage of initial redtUtibent there is, of course, no objection to reserva¬
tion of quotas for scheduled castes and scheduled tribes. At the promotion
stage, however, the reservation of quotas for, and the weightage given to,
candidates belonging to scheduled castes and scheduled tribes can give

rise to a feeling of iniquity among the staff who have already put in several
years of service. Such quotas at the promotion stage have already been in
operation for the last ten years. We consider that the Government should
review the question now in the context of the present day conditions and
in the light of the evidence referred to in the foregoing paragraphs.

The calibre and position of railway officers

111. We have already referred to a widespread sense of dissatisfaction
among the category of officers which, we found, has been growing due to
a variety of factors. Our visits to the Railways and our talks with various
officers confirmed our impression of the general feeling of discontent among
all categories of officers. Some vital factors like outside interference and the
role of Vigilance in engendering dissatisfaction among officers have already
been mentioned by us in the earlier part of fhis chapter. Coming now to
their pay scales and promotion prospects, it was pointed out to us that
while the work and responsibilities or railway officers have, in the present
democratic set-up, grown beyond all proportion and the importance of the
role which they have to play is generally recognised, their unfavourable pay
scales in comparison with those of their counterparts in the public sector
and other comparable services elsewhere, inadequate opportunities for
deputation assignments, slow promotion propects arising mainly out of
injudiciously large-scale recruitments in various years and an unbalanced
cadre structure have all resulted in general discontent among railway
officers.

112. The Federation of Class I Railway Officers’ Associations, in their
evidence, furnished to us a comparative study of the advancement prospects
of officers in various services as reflected in the cadre structures of the ser¬
vices in which recruitment is made through a common competitive exami¬
nation of the Union Public Service Commission. We reproduce this
below

Services

Years of service for entering

/---*- —i

Jr. Adndnis- Sr. Adminis¬
trative grade trative grade

1 v Indian Postal Service

.. ., 8 years

20 years

2 Indian Defence Accounts Service ..

.. .. 11 years

20 years

3 Indian Audit & Accounts Service ..

.. .. 11 years

15 years

4 Indian Revenue Service ..

.. .. 14 years

G1 years

6 Indian Railway Services ..

.. .. 18 to 20 years

26 yearn

Note: Based on classified Hat of officers I960.

113. The Federation of Class I Officers’ Associations, in drawing our
attention to the above statement, pointed out that in most of the Services,
the promotion to the Junior Administrative Grade (Rs. 1300—1600) takes ,
about 8 to II years' time whereas in the major Railway Services it takes
18 to 20 years. Similarly, while it takes IS to 20 years in some of the Services
for an officer to reach the Senior Administrative Grade, it hardly ever takes
less than 25 years for an officer in the major Railway Services to reach
that stage. Furthermore, there i$ discrimination between the Senior Ad¬
ministrative Grades on the Railways on the one hand and other depart¬
ments on the other.

114. The Federation also drew our attention to the fact that the posi¬
tion is worsened because other Services like the Indian Audit and Accounts
Service and the Defence Accounts Service have a much larger percentage
of officer* on deputation in Administrative Grades outside" their respective
departments than the Railway Services. The Federation furnished the
position as obtaining in 1966 when the Indian Audit and Accounts
Service with a cadre of 519 officers and the Defence Accounts Service with
a cadre of 165 officers had 128 and 29 of their officers (24.6 per cent and
17.5 per cent) respectively on deputation in Administrative Grades. As
against this, the Railway Services with a cadre of 4200 officers had in the
same year only 50, i.e. 1.2 per cent, on deputation in such posts outside
the Railway Ministry. Even if deputation to the Railway Board and the
R.D.S.O. is taken into account, the percentage, we were told, worked out
to only 3.6.

115. Our attention was also drawn to the fact that on the Railways,
the percentage of officers in the Junior Administrative Grade and above in
relation to the total number of officers compares unfavourably with the
corresponding percentage in other departments of the Government. The
Federation quoted the relevant figures for the year 1966 in this behalf
which we reproduce below: —

Railways

Indian Audit & Accounts Service
Indian Defence Accounts Service
Indian Income Tax Service ...
Indian Postal Service

15.0

31.0

33.0

28.0

22.0

116. We understand fhe position in Railway services has changed
slightly since then with the upgradation of certain posts. Even so, as com¬
pared to the other Services, tne Railways continue to compare unfavour¬
ably.

117. We were also told that the emoluments drawn by officers in the
major departments on the Railways when compared with those drawn by
officers in other government departments with corresponding lengths of
service show a large disparity. This disparity is even .wider when the emolu¬
ments of officers on the Railways which are the biggest national commer¬
cial undertaking are compared With those of the executives of public sector
undertakings with comparable status and responsibilities. As an instance,
it was pointed‘out that a Divisional Superintendent on the Railways who
is the head of a division and whose responsibilities may be aptly compared
with those of the heads of several of the public undertakings in terms of
the number of staff employed, the operating, results and the capital-at
charge on a typical, railway division vis-a-vis such undertakings enjoys a
highly unfavourable position.

1)8. We have no doubt in our minds that if a vast organisation like
the Railways is, to function efficiently, it must have in its superior cadres
men of th$. best calibre available. Obviously, the objective is unlikely to
be achieved unless service conditions are such as to attract talented young
persons. Recruitment to Class I cadres of the Railways is made by the
Union Public Service Commission through a combined services examina¬
tion by which recruitmenti to a number of other services is made. Unlike
in the past, the bulk of the. top class students in the Universities today

prefer to go to private industries and public sector undertakings on grounds
of better pay and prospects and many of them do not care to' appear in
the UPSC examinations. Among those who do take the UPSC examina¬
tions, it was pointed out to us, the Indian Railway Traffic Service receives
a much lower preference today as compared to the other Central services
like the Audit and Accounts and Income-Tax Services, and as a result
those who eventually are drawn to the Railway Services are not among
die topmost of even those who take the competitive examination. This
obviously i? a cause for considerable concern since the cadre of railway
officers wluch hitherto has acknowledgedly been composed generally of
talented and capable officers faces a serious risk of being diluted in the
future. It is uf vital importance that steps be taken to attract suitable men
to mao these services since it is on the capability and initiative of young
officers that in the years to come, the operational efficiency of the railways
must depend.

1 19. We x-ealise that it is not our function to spell out details of the
proposals for improving the pay scales and prospects of officers, but we
are anxious that the general feeling of discontent should be cleared up
and the cadre structure of railway officers should be so recast that from
the point of view of prospects, the best talent is attracted to the Railway
Services. We also understand that the Administrative Reforms Commission
went into this matter in considerable detail recently and have made certain
recommendations. Wc have no doubt that the Government will consider
these recommendations closely, appreciating the need for urgent action.
We would, on our part, urge them to devote their attention to this prob¬
lem without loss of time,

120. Officer-staff and supervisor-staff ratio —In our discussions with the
Railway administrations on the importance of effective contact and two-
way communication between the management and the staff and the need
for personal contact between officers and the men working under
them, most of the Railways stated that while they fully realised the need
for such contact and communication, the existing officer-staff and super¬
visor-staff ratios are too low to ensure this personal contact and continuous
two-way communication between the management and the men.

121. As for the reasons for the low ratio it was, among other things,
stated that with the expansion of the railways during the last two decades,
the units of administration have become much larger and) generally un¬
wieldy but there has not been a corresponding increase in the strength
of supervisors and officers. The result has been that personal contact bet¬
ween officers and supervisors on the one hand and the staff on the other
bas been steadily shrinking.

122. It was stated that while the ratio of officers to staff in most of the
departments is low, such ratio is the worst particularly in the Transporta¬
tion and the Mechanical Engineering departments. The total strength of
officers on the Railways is a little over 7,100 and the ratio thus, in relation
to 1.35 million men, works out to about It 190 As against this, the ratio
in the Transportation department is 1:452 and in the Mechanical
Engineering department I; 712.

125. We had asked the opinion of the various Railways as to the
optimum officer-staff and supervisor-staff ratio. From the replies given by
the Railways, we find that there is considerable divergence of opinion.
While some Railways consider that the ratio of 1:500 as between officers

and staS would be adequate, others consider that the ratio should not be
less than 1:100. We do not consider ourselves competent to make a de¬
finite pronouncement on the ratio. It is obvious that the optimum ratio
would not only differ from department to department but even within
the same department it might differ considering the geographical distri¬
bution of staff and jurisdiction of officers. For instance, where the staff
are scattered apd far flung over a large area, to maintain adequate contact
with the staff, the administration may need a larger number of officers.
On the. other hand, where there are concentrations in a limited caqipus,
perhaps a smaller ratio might be found adequate. Having found that
where is general awarehess in the Railways of the problem and of the
inadequacy of the present ratio, wc would like to leave it to the Railway
Qoard and the Railway administrations to work out after proper scienti¬
fic study, the appropriate ratios between officers and the staff. We need
hardly point out that to improve the ratio, the matter would have to be
tackled from both ends, that is, to strengthen the number of officers and
supervisors wherever required on the one hand and to make suitable ad¬
justment in the number of men in the various wings.

134. We would like to make a mention wf an associated matter which
though nbt strictly related to the ratio between officers and staff has re¬
levance to the organisational structure of the management, insofar as it
affects two-way communication between the top and the middle manage¬
ment. The present set-up on the Railways has no doubt stood the test of
tine but in the present situation with the increasing tempo of traffic,
increase in manpower and the complexity of management* problems, a
time has come when serious thought should be given to streamline the
command structure on the Railways to deal with the challenges of the
present and the future. One way in which this may be accomplished is for
the organisational structure to be subjected to an expert study.

The burden of paperwork

125. While discussing the problem of effective supervision by officers
and supervisors over their respective jurisdictions we were told that officers
and supervisors find little time to attend to their field duties since they
are overburdened with paperwork and are compelled to devote a consider¬
able amount of time in their offices attending to files and correspondence.
The general lack of trust in the men on the spot, absence of adequate and
dependable tele-conununication facilities, outside interference and a ten¬
dency to introduce a more elaborate procedure whenever something goes
wrong somewhere were adduced as the reasons for the increase in unpro¬
ductive paperwork.

126. We are aware that this state of affairs is not peculiar to the
Railways and has become a feature of work in most Government' offices
due to the reasons referred to above and is (hardly likely -to lend itsdf to
an easy solution.

127. Utility of consultancy—A General Manager of a Railway, during
his evidence, stated that it would-be desirable to have a person mom out¬
side—not necessarily a foreigner—to have a eood look at the procedures.
We endorse this suggestion and recommend that paperwork as far as it is
generated by inftructuous procedures may be the subject matter of a fruit¬
ful study by a team of management consultants. We would like to add here
that the impression we gathered was that the railway administrations like

other government departments fight shy of the idea of engaging consul¬
tants as if such a course would reflect on their competence.. We consider
that consultancy in the matter of office procedures as also in other fields
may open up the management to fresh and useful ideast Considerations of
false prestige should not be allowed to come in the way in such, matters.

128. Devolution of authority and delegation aj powers— would
also suggest that the Railway Board and the Railway administrations
should investigate whether any further devolution, of authority and dele¬
gation of poivers would not be conducive to a reduction in the volume of
correspondence and paperwork. In saying this, we would, of course, like
to strike a note of caution that any delegation of powers.can have utility
only if the authority to whom the power is, delegated is allowed tp exercise
the power and obviously it will be rendered ineffective if distrust in the
man on the spot continues to prevail.

Railway Labour Science Research Institute

129. The mental make-up of an individual engaged in duties which
call for a high degree of alertness amidst the financial and other worries
and the stresses and strains of, the complex present day life presents a high¬
ly intricate socio-psychological problem. To add to the complexity come
in other factors like the functioning of an individual’s faculties during"
periods of inaction punctuated by sudden spurts "of concentrated, petivify,
working itt conditions of total solitude ana inclement weatb(er at times,
working continuously during night time and during odd hours for pro;
longed periods extending over several days and sometimes months at a
stretch, the drowse-inducing drone of the diesel locomotive and so on. All
these situations call for a dose and continuous study of hurqan behaviour
under varying conditions. It is against this background that, we under¬
stand, the Japanese National Railways had set up their Railway Labour
Science Research Institute. According to the information available to us,
the Japanese National Railways have been devoting a good deal of atten¬
tion to this problem, namely, of correlation between man and machinery
which has come to the fore with the introduction of modern day techni-
ques.'The effective use of modernised techniques and machines, it is
realised, is possible only through maintenance of harmonius, relationship
between the characteristics of human beings afid those of 'machines. Any
let-up in these harraonius relations insofar as railway operation is con¬
cerned can result, and sometimes does, in disastrous accidents. It was evi¬
dently ini this realisation and with the object of making a study of human
engineering insofar as it affects railway working that the Japanese Institute
was Started about six years ago.

130. Apart from various studies on aspects which arise in day-to-day
train operation, the Japanese Railway Labour Science Research Institute
has occupied itself with fundamental research on perception, sensation and
mobility of its workers, investigations in the content of aptitude tests! and
the development and introduction of new testing methods and sdcio-
psychological researches aimed at developing keenness in work and spirit
of cooperation. The Human Engineering Research Laboratory attached to
the Institute, in addition, conducts research on the techniques of accident'
prevention and safety and on the psychological make-up which leads up
to mistakes and forgetfulness. The application of the results obtained from
such fundamental physiological and psychological research are utilised for
evolving rational working methods.

131. We consider that in a vast organisation like the Railways which
employs more than a million workers, such labour science research would
not be a mere refinement or a needlefcs sophistry but an organ of consi¬
derable practical utility. We had referred to the Psycho-Technical Cell in
the Railway Board in Part I of our Report. This Cell, we are told, is at
present engaged in research on aptitude tests to determine the suitability
of a, man for a job. We find that eVeft with the highly limited objectives
which the Cell has'set for itself, the progress which it has made so far has
been insignificant. We acknowledge that in matters of this nature, it is
better tv> proceed slowly rather than jump from one thing to another in
a haphazard manner; Nonetheless, we consider that the scope of such
studies should he suitably enlarged so that it is not confined merely to
building up of some aptitude tests but encompasses the broader problems
of the, socio-psychological make-up of the railway worker and of human
engineering (>yhich have particular reference to rational and safe work¬
ing on the railways. We would commend for the consideration of the
Railway Board tha^ they ascertain from the Institute on the Japanese
National Railways and from similar institutes which the railway systems
of .other advanced ,countries may have established in the field* ol investi¬
gation which they undertake and the techniques adopted and thereafter
dj^vy up an integrated prpgrammc of socio-psychological study and re¬
search. It pifcurs to us that Universities and otqer institutes and founda-
tions r) ifi the country engaged in pursuits of this nature may.be in a posi¬
tion'to aid the Railways in such studies.

Chapter III
TRAINING OF STAFF

Trainin'g Schools—Capacities and fatalities

132. We had, in Part I of our Report, observed that the available capa¬
city in the training schools on the zonal Railways was being utilised only
partially and had urged the Railway administrations to locate and remedy
the factors which militate against the proper utilisation of the existing
training facilities.

I S3. During the course of our tours, we had occasion to visit several
of the Zonal Training Schools and the System Technical Schools which
between themselves impart training to various categories of staff like guards,
drivers, station staff, train examiners and other artisan staff. The Principals
of most of these training institutions agreed that they were in a position
to take on a heavier load of work and that the available capacity was not
being fully utilised. A few isolated instances of shortcomings in the facili¬
ties tor training were brought to our notice during our visits to these
schools. For instance, at the Zonal Training Schools at Alipurduar and
Tiruchirapalli, it was poihtcd out that the hostel accommodation was
inadequate. On the Northern Railway, facilities for training of carriage
and wagon fitters were reported to be deficient. Some training schools com¬
plained that they w'ere not receiving the accident inquiry reports of the
Additional Commissioners of Railway Safety and lo that extent the instruc¬
tion imparted by them on safety aspects was deficient. Apau ):oin these
few deficiencies in the facilities for training, we found the arrangements
for general-purpose training of siafl generally, adequate.

134. We also visited the Indian Railway School of Electrical and
Mechanical Engineering, Jamal pur. the Railway Staff College, Rarnda and
the Indian Railway School of Signal and Telecommunication Engineering
Secunderabad. At jamalpur, we were told that there was ample s ope for
intensifying the training of drivers, tTain examiners, trade apprentices etc.
The capacity of the Railway Start College, Baroda, we were advised, was
not only being fully utilised, but had become a limiting factor mid was
proposed to be augmented. At the Secunderabad School, we were advised
that in addition to officers, the Signal Inspectors also received tiaining in
the maintenance of sophisticated signalling equipment.

135. On the South Central Railway, however, we were struck by the
absence of a Zonal Training School. This Railway came into existence about
three years ago, but uptil now the training of staff of this Railway is being
catered for by the Zonal Training Schools of the Central and the Southern
Railways. W'e consider it essential that the setting up of a Zonal Training
School and the creation of training facilities on the South Central Rail¬
way are not delayed further.

Training of staff in the maintenance and operation of modern sophisticat¬
ed equipment

136. The observations which w'c have made in the foregoing para¬
graphs relate mainly to the general-purpose training imparted to staff and
officers. The problem which the Railways face today and which I hey are

likely to face in an increasing measure in the years to come pertains to
specialised training in the various fields of railway working which are
undergoing modernisation. With the introduction of modem highly-
sophisticated equipment in various fields of railway operation, it has be¬
come imperative that the staff entrusted with the responsibility of handling,
operation ind maintenance of the equipment are imparted adequate and
intensive training. On our tours, however, we received a large number- of
complaints from the staff and at times from officers in regard to inadequate
and patchy paining of such staff. We attach great importance to this prob
lem and propoise to discuss this in the following paragraphs.

137. Training of sigtialling staff —Modern signalling is a highly techni¬
cal science and in consequence requires highly intelligent, technically quali¬
fied and thoroughly trained staff tor handling and operation of the equip¬
ment, The firms who-are given the contract to instal these undertake to
maintain the new installations on a Railway for a limited period. During
the course of installation, a small number of staff is associated with the
manufacturers. They become acquainted with the equipment and are in
due course expected to maintain the installations in the construction of
which they were associated. We have been given to understand that this
practice is at present in vogue on the Railways without exception for the
training of electrical signal maintainers and inspectors who are subsequent¬
ly entrusted with the maintenance of highly complicated installations like
route relay interlocking, centralised traffic control etc. The shortcoming
of this) arrangement is that the training is not systematised and the staff
are left to their own resources to pick up whatever they can.

138. During the course of evidence of a number of mechanical and
electrical signal maintainers, we could not help forming the impression
that most of them were either mediocre in calibre or quite incompetent
in their jobs. Quite a number of those who appeared before us said that
they had hardly any opportunity to be trained in their jobs in a systematic
manner and hence were not fully conversant with the working of the com¬
plicated signalling plants in their charge. Most of them lacked technical
qualifications and had been picked up from among those who had earlier
worked only on the conventional mechanical signalling.

139. The Railways, in their replies to our questionnaire, offered
diverse views on the subject of training of staff in the maintenance of
modern signalling equipment. Some of them said that no difficulty was
being experienced; others thought otherwise. It was made out by some
of the officers during their evidence that the responsibility for the main¬
tenance of installations like route relay interlocking and other sophisticated
signalling equipment lies on the inspectors and not on the maintainers
and that the inspectors get adequate training in the School at Secunderabad.
This we are not inclined to accept as not unoften maintainers have to
attend to their jobs unaccompanied. The opposite version was given by
a Chief .Signal and Telecommunication Engineer of a Railway who stated
during his evidence before us that he was generally dissatisfied with the
training of not only the signalling staff but also of the operating staff in
regard . to the maintenance and operation of sophisticated grades like
route relay interlocking centralised traffic control etc. He added that the
staff did not fully understand the use of modem equipment and as a result
the incidence of failures Was higher than what it should be. Even though
endeavours were made tr> train the staff prior tt> the commissioning of
the modem signalling installations,' difficulty arose as each department

trained its own staff and the number of officers who could impart the train¬
ing was inadequate. The period of training was also short. Another Chief
Signal and Telecommunication Engineer said that maintainers picked up
work by practical experience. Their performance, he said, was watched
before they were put on the job, but no regular test was taken. In a hand¬
out given to us on a Railway, it was indicated that there had been an
increase in the incidence of derailments on a route relay interlocking in¬
stallation due to teething troubles and also owing to the staff of the signal¬
ling and operating departments not being fully conversant with the main¬
tenance and operation of panel interlocking, A retired Meimber of the
Railway Board observed during his evidence that he had always felt and
tried to take measures to see that the maintenance of sophisticated signal¬
ling equipment kept pace with the rate of expansion since it would do
more harm than good if they were not maintained properly. This, he went
on to_say, was something which the people had a tendency to forget. We
are disposed to agree with this witness entirely. We ourselves found that
some of the maintainers and operators who gave evidence before us con¬
veyed a poor impression of their professional competence. An approach
to training which aims at leaving the trainee to his own resources is neither
systematic nor scientific and we hope that the Railways would shed their
complacency regarding the present practice of imparting indifferent train¬
ing to maintainers.

140. We were told that the Central Railway had recently set up a
training centre at Byculla for the training of electrical signal maintainers.
We coinmend the foresight of this Railway and strongly urge the setting
up of a well-equipped training centre on each Railway for the training
of electrical signal maintainers needed for the maintenance of modern sig¬
nalling equipment. These centres should be adequately equipped with the
working models of modern signalling installations and lessons should be
given on basic techniques, installation and maintenance. Curricula should
be framed for both initial and refresher training.

141. We were informed by the Director, Signal and Telecommunica¬
tion Engineering of the Railway Board that' in 1957, a Standards Advisory
Committee had gone into the question of syllabus, training, qualifications
and recruitment of signal maintainers and inspectors. The recommenda¬
tions of this Committee were accepted and were implemented from 1962
onwards. He added that it was proposed to discuss this matter in the next
conference of the Chief Signal and Telecommunication Engineers due to
be held in the Railway Board’s office in May, 1969, so that a Committee
of officers could be deputed to examine this question in further detail. It
was stated that this Committee woulij go into the question of minimum
qualifications, period of training and grades so as to attract suitable men.
We understand that the said Committee has not yet given its recommen¬
dations. We consider that the question of recruitment, training and grades
of signalling staff calls for an urgent decision and would be in the interest
of d Safety in operation which modern signalling equipment aims at pro-

142. ,We further suggest that the panel operators to be employed for
operating route relay installations, centralised traffic control etc. should
also be trained in the centres set up for training of signal engineering
staff, so that before they are put on the jobs, they get an opportunity of
learning their jobs on working models. We also feel that competency certi¬
ficates should be issued to operating staff by authorised officers of operating

and signalling departments jointly after a proper test before they are em¬
ployed on the operation of modern signalling equipment.

143. Our attention was drawn to the fact that electrical and mechani¬
cal maintainers and inspectors are almost always separate hands and func¬
tion separately. According to this system, each maintainer or inspector has
to cover a large number of stations and a good deal of duplication results
in the maintenance and inspection of gear apart from some diffusion in
responsibility. With a view to making the inspections more intensive and
reducing wastage of time and energy inherent in the present system, it is
suggested that mechanical and electrical cadres should be combined and
integrated into a single cadre. This step would, in our view, result in closer
inspection and better maintenance of signalling equipment.

144. Staff for maintenance of electric locomotives, traction and other
electrical equipment —The burden of evidence in respect of the techni¬
cal proficiency of staff entrusted with the maintenance of electric loco¬
motives, traction and other electrical equipment more or less echoed what
had been stated before us in respect of electrical signal maintainers. We
were told that whereas the maintenance of electric locomotives and other
traction equipment is a highly technical and specialised job requiring re¬
pairs, inspection, precision testing and measurement of a wide variety of
machines and equipment and it is essential that the staff with the requisite
qualifications and experience should be specially selected and trained to
suit these jobs, at present the staff lack the technical knowledge of the
latest sophisticated electrical equipment and each Railway follows it's own
system of imparting training to the staff for this purpose.

145. We understand that the Railway Board have laid down the cur¬
riculum of training required to be imparted to supervisory staff deputed
for the maintenance of electric.locomotives and electric traction equipment
on the lines indicated by the manufacturers. However, some of the Chief
Electrical Engineers suggested during the course of their evidence that a
centralised training school on the lines of the Signal and Telecommunica¬
tion School at Secunderabad should be set up to train the supervisory staff
of all Railways in inspection and maintenance of electric rolling stock and
traction equipment. In addition, each Railway having electric traction
should have a school for training of artisan staff and for giving them ref¬
resher training. This school should also cater for the training of staff
employed for the maintenance of general electric and train lighting
services. We consider that the implementation of these suggestions would
be a step in the right direction.

146. Staff for maintenance of diesel engines —As in the case of signal¬
ling staff, we observed lack of uniformity in the training of staff for the
maintenance of diesel locomotives. On one Railway, facilities have been
provided in the diesel shed where the staff entrusted with the mainten¬
ance of diesel locomotives undergo initial, promotion, and refresher
courses. On another Railway, sandwich courses of training are organised

{ >artly in the class room and partly in diesel sheds for training of staff
or the maintenance of diesel locomotives. The training school on this
Railway is yet in the process of being set up for training of staff required
to maintain diesel locomotives. We suggest that the Railways should create
adequate facilities in their System Technical Schools or alternatively in
schools attached to the diesel sheds for imparting proper training to the
staff employed on the maintenance of diesel locomotives.

Jj/(lT)3Mof Railway—5

147. Training of diesel and electric locomotive drivers —Any Railway
switching from steam to diesel or electric traction faces the transitional
problems of training of staff for maintenance and repair work as well as
for operation of diesel and electric locomotives. Drivers to man diesel and
electric locomotives are drawn mainly from steam traction. Though several
Railways have introduced the pattern of training of diesel and electric
drivers through training in simulation cabs, we feel that a greater degree
of uniformity in this important ‘conversion training* is necessary. Detailed
curricula of training under Indian conditions should, in our view, be
drawn up in the near future after a careful study.

148. Some of the Railways have set up training facilities at one or
the other of their schools. On others, the diesel and electric locomotive
running staff are trained in loco sheds. These Railways consider that the
‘conversion training' of 14 weeks to 6 months given to steam engine
drivers would be adequate to accomplish the changeover.

149. During our discussions with Col. 1). McMullen, till recently
Chief Inspecting Officer, British Railways he emphasised the great need
for imparting intensive training to drivers.when they were switched over
from steam to diesel or electric traction. Col. McMullen suggested that
techniques adopted for training the drivers for diesel and electric loco
motives should be on lines similar to those employed for training of air¬
craft pilots. It should be a simulation training organised with great care
if a crash programme of converting steam locomotive drivers into diesel
or electric locomotive drivers is to be gone through.

150. We agree with the appraisal of the problem by Col. D
McMullen. It would be well to realise from the outset that a diesel or
electric locomotive is not a rugged machine like a steam locomotive. The
controls on the former are finer and more sensitive. The diesel and elec¬
tric locomotives are not only much costlier but if handled properly, far
more efficient and contrarywise if handled incompetently are more apt to
failure. It naturally follows that the driving staff for diesel and electric
locomotives should have adequate educational and technical background.
We understand that a process of selection is already inforce hut we would
emphasise that where they have to be selected from amongst steam loco¬
motive drivera, they must be screened carefully and considerations of
seniority etc. should not be allowed to come in the way of proper selec¬
tion of men. It. should also be borne in mind that as a rule, a man's capa¬
city for learning a new job gets considerably reduced after attaining a
certain age. Having selected the staff for working diesel and electric
locomotives, these men should be put through a systematic course of train¬
ing under the guidance of fully trained and thoroughly experienced per¬
sonnel. The ‘conversion training’ given to steam locomotive drivers would,
unless it is on a systematic and properly directed basis, be hardly adequate
to accomplish an efficient changeover.

151. We would like the Railways to keep a special watch on the nature
of lapses on the part of the diesel and electric locomotive drivers which
result in accidents as these may be useful pointers to the shortcomings in
their training. It is also our view 7 that the aptitude tests which have been
evolved or are in the process of being evolved by the Phycho-Tcchnical Cell
should, in the first instance, be applied to the categories of electrical and
diesel locomotive drivers before selection and recruitment.

152. Staff for mechanised inspection and maintenance of track —We
need hardly stress that the success ol mechanised inspection and mainten¬
ance of track would depend on the availability of suitable personnel for
maintaining and handling the equipment no less than on the equipment
itself. This makes iL necessary to give specialised training to inspectors and
the skilled categories of operators and maintenance fitters.

153. In reply to our questionnaire to the Railways, one Railway sug¬
gested that centres should be set up at selected places for giving intensive
training in mechanised maintenance and inspection of track. Some others
felt that it would be preferable if the mechanics and fitters are given train¬
ing in the works of the firms manufacturing the machines. It would, in
our view, be advantageous if an integrated programme which provides in¬
tensive training to the staff in mechanised maintenance and inspection of
track both in the works of the firm manufacturing the machines as also in
the field, is evolved.

154. We were advised that the Committee of officers which went into
the question of welding of rails recommended that scientific approach
should be inculcated in staff at all levels dealing with long-welaed rails
through initial training and frequent refresher courses. We are in agree¬
ment with this approach. This would also hold true in case of staff de¬
puted for maintenance of track by measured shovel packing. We would sug¬
gest that necessary facilities are built up on each Railway and as a first
step instructors for these jobs are trained by the R.D.S.O. or at a suitable
centralised training centre.

155. Staff to operate ultrasonic testing equipment —With the pro¬
gressive introduction of ultrasonic testing on the Railways for assuring
safety in train operation, it has become necessary to impart proper train¬
ing to railway personnel in the field of ultrasonic testing of axles, rails etc.
We understand that the Railway Board have asked the Research, Designs
and Standards Organisation to arrange for the training of staff in the use
of ultrasonic flaw detectors. In reply to our questionnaire, the R.D.S.O.
stated that a modest beginning has been made in this direction and a pro¬
posal for setting up of a training school for training the staff in the use of
ultrasonic testing equipment to cater for the need of the operators and
giving them refresher courses is under consideration. We feel that the
setting up of such a school for the training of staff in the use of ultrasonic
flaw detectors should receive high priority.

156. Personnel of the stores department —We have referred elsewhere
in this Report to the need for gradual replacement of the outmoded error-
prone manual methods of stores handling by more scientific methods of
materials management. This raises the question of the role of staff who
have ultimately to implement the modern methods of inventory control
and materials management. We have been advised that at present the
entire stores organisation, barring of course a few officers, is managed by
non-technical staff. In their replies to the questionnaire, the Railways, by
and large, suggested that technically qualified persons, preferably en¬
gineering graduates, should be recruited to the stores cadre. We, on our
part, consider it necessary that the Railways embark on a course of train
ing of personnel who have to man the stores organisation.

157. W e feel that necessary facilities for imparting such training will
have to be created on the Railways or in a centralised institution. It was
suggested to us during the course of evidence that the Indian Railway

School of Electrical and Mechanical Engineering, Jamalpur, was in a
position to train not only t'he staff and officers of the electrical and mecha¬
nical departments, but also of the stores department. We see merit in this
suggestion and suggest that tfie possibility of making use of this or other
similar institutions or for developing alternative facilities for training of
stores personnel be examined.

158. Refresher training —We had, in Part 1 or our Report, stressed
that the categories of staff in need of refresher training should be given
such training without any exception. A retired Chairman of the Railway
Board expressed the view that unless training in service, that is refresher
training, continues to be imparted to staff from time to time and at inter¬
vals which are not long, the sense of safety-consciousness becomes difficult
to maintain in the work-a-day life of the staff. A retired Member of the
Railway Board felt that the refresher training was not as intensive as it
should be. We consider it essential that training in service should be in¬
tensive, regular and should he more job oriented than theoretical as is the
case at present.

159. Training of supervisors —Wc have in the previous chapter re¬
ferred to a general dilution in. the quality of supervisors due to a variety
of reasons. One reason has been the unprecedented expansion of Railways
in recent years due to which a large number of posts of officers were
filled from amongst the category of supervisors; the tilling of the resultant
vacancies led to men with inadequate training and experience getting
appointed as supervisors and the consequent dilution of the cadre or
supervisors.

100. We cannot over-emphasize the need for the proper training of
inspectors and other supervisors since ultimately the interpretation of
what the administration requires its workers to do rests in the hands of
these men who are in direct contact with the workers. On the quality of
these men depends not only the image of the administration in the eyes
of the worker but also the quality of output which would ultimately
emerge. Furthermore the problem has, in recent years, assumed added
urgency with the coming into use of modernised equipment and tech¬
nology in various fields of railway operation. It is therefore of vital im¬
portance that specialised courses are arranged for these inspectors and
supervisors both to develop their outlook and to make them profes¬
sionally more competent. Indeed, this is a matter so important in our
view that it should receive the attention of, and may be watched by, the
General Managers themselves. We have no doubt that those who undergo
such specialised courses would emerge as better inspectors and better
supervisors.

161. It was pointed out to us that the Railway administrations were
seized of the problem and that courses of training for supervisors were
being imparted at different training centres. The Kunzru Committee had
emphasized the need for developing an all-India outlook among the super¬
visors. According to the information given by the Railway Board, arrange¬
ments were made for conducting a centralised course in supervision and
management in the Northern Railway Zonal Training School at Chan-
dausi. A course each was held in 1964 and 1965 and two in 1967. Judging
from the fact that in the last four or five years only four courses were

held, it is doubtful if the matter is receiving the attention which it de¬
serves, We are also doubtful if the facilities and the calibre of instructors
at Chandausi are such as to make it possible to orient the course with an
all-India outlook.

162. It was of course a matter of satisfaction to us to find that the
signal engineering supervisors of all Railways are trained at the Signal
and Telecommunication School, Secunderabad. But no corresponding
facilities appear to exist for the supervisors of civil engineering, trans¬
portation and mechanical engineering (except those concerned with fuel
economy). This not only results in different standards of training of
supervisors on the various Railways but also precludes their being able
to acquire an all-India outlook. We would suggest that refresher training
of senior supervisors belonging to civil engineering, transportation and
mechanical engineering departments should, like those of the signal engi¬
neering department be arranged at the respective all-India training
centres at Poona, Baroda and Jamalpur. Specialised courses of three or
four weeks’ duration organised at regular intervals should make it possible
for all inspectors and supervisors to be trained and oriented reasonably
adequately within a short span of time. If the existing facilities at these
institutions are inadequafe, it would be as well to augment them suitably.

163. Training of officers—A number of useful suggestions were made
by senior railway officers—serving or retired—during their evidence be¬
fore us in regard to the training of officers. Some of these, which in our
view merit attention, we indicate below: —

(i) Probationary officers at present receive purely theoretical train
ing at Baroda though they are taken round on the Railways
occasionally. The actual w'ork which they have to do on the
open line, they learn only if somebody is there to show them
how a thing Is or can be done. An experienced officer should
he specially selected and put incharge of them so that they are
not left to their own resources to pick up what they can. There
should be wholetime training officers deputed for the purpose.

We understand that a scheme has since been started for proba¬
tionary transportation officers at Asansol where young trainee
officers receive field training under the guidance of an ex¬
perienced wholetime officer. We welcome this step and urge
that similar steps be taken for trainee officers of other depart¬
ments.

(ii) Senior seasoned officers should be deputed to go as roving
instructors. They should spend some time with the officers—
even upto the Divisional Superintendent’s level—who are
holding charge on the line and guide them in their problems
as friends rather than as critics.

(iii) The officers and supervisors of technical depratments should be
so trained as to receive specialised training in particular trades
while acquiring broad knowledge of railway working in other
fields.

164. We have no doubt that the Railway Board would go into the
merits of these suggestions and take appropriate action. We, on our part,
would like to add that a young officer is an asset on whom no investment
is too heavy to make him professionally competent and a good manager
of men.

Chapter IV

OTHER STAFF MATTERS

Recruitment procedure and the Railway Service Commissions

165. As a result of the expansion of the Indian Railways in the early
thirties and thereafter, it was considered that the recruitment of staff
which until then had been made by the Railways through the medium
of ad hoc Selection Committees set up by them should be discontinued
and entrusted to an independent body to be specially constituted for the
purpose. Later this principle was enunciated in a report prepared by Shri
Frank D’Souza, Officer on Special Duty, Railway Board, who had been
deputed to go into the subject of representation of minority communities
in the services of the State managed Railways. In this report, he observed
that the existing procedure of recruitment was cumbersome and unfair to
candidates and therefore the recruitment of railway staff should be made
through independent agencies. The Railway Board considered this report
and in July 1942, a Commission was set up as an experimental measure for
recruitment of subordinate staff on the ex-North Western Railway. After
four years of its working, the Railway Board, having been satisfied that
the experiment was a success set up other Railway Service Commissions
towards the end of 1946,

166. Until January, 1958, when the Northeast Frontier Railway was
formed, the recruitment needs of the Pandu region of the North Eastern
Railway were met by the Railway Service Commission, Calcutta. Upon
the formation of the Northeast Frontier Railway, the recruitment pertain¬
ing to the Pandu region was withdrawn from the Railway Service Com¬
mission, Calcutta and all fresh recruitment for the entire Northeast
Frontier Railway was entrusted to a specially established recruitment
committee headed by an officer in the Junior Administrative Grade. Such
a committee headed by an officer not below the rank of a deputy head of
department has been functioning on the Northeast Frontier Railway since
then. Of its two members, one is a senior scale officer of the department
concerned and the other a senior scale personnel officer. The latter is a
whole-time officer for this work.

167. Delays involved in selection of candidates —We had occasion to
point out, in Part I of our Report, the heavy delays which take place in
the present procedure of making recruitment through the Railway Ser¬
vice Commissions. The Chief Personnel Officers of all the Railways, during
their evidence before us, stated that the time-lag between the placing of
the requirements by the Railways on the Railway Service Commissions
and the receipt of panels of selected candidates is unduly long. The
Chairmen of the Railway Service Commissions accepted that the time
schedule laid down by the Railway Board is at times exceeded. They,
however, attributed this to the system of recruitment according to which
the vacancies have to he widely advertised resulting in receipt pf an enor
mous number of applications. The screening of applications for sorting out
the eligible candidates, the holding of mass examinations, the interviews
and the finalisation of the panels takes a lot of time. Two of the Chair-

4 ?

men of the Railway Service Commissions, therefore, opined that the time-
schedule for selection of candidates should be extended and should not
be less than eight to ten months.

168. The Chairmen of the Railway Service Commissions drew the

attention of the Committee to the fact iiiat panels of selected candidates
supplied by the Railway Service Commissions were utilised by the Rail¬
way administrations only partially. They pointed out that the utilisation
of the panels was only about 50 per cent even after a lapse of one or
two years which is the normal currency of a panel. This, they said creates
an embarrassing position for the Railway Service Commissions and
causes frustration among the successful candidates. To this, the Chief
Personnel Officers of the Railways said in reply that the situation was
brought aboui by the long time-lag between the placing of the require¬
ments and the receipt of the list of successful candidates; in the interim
period according to them, vacancies were often filled by promotion from
among the lower categories of staff and in some cases vacancies were not
filled in the wake of economy drive, etc.

169. In reply to a questionnaire which we addressed to the Railways,
many Railways favoured decentralisation of recruitment of Class III staff.
They said that this would eliminate delays in the recruitment of staff and
would enable induction of regional and local bias in selections in the
recruitment of lower categories of staff. They also pointed out that added
emphasis on regional and local bias in such selections would assist in
easing the housing problem.

170. Having seen the heavy delays which occur from the time the
original requirements of staff are sent to the Railway Service Commissions
until the lists of successful candidates are finalised, we do not
sec the merit of the present system of recruitment, least of all
for mass categories like assistant station masters, guards, train clerks,
commercial clerks, etc. We have no doubt that the system of recruitment
is not only dilatory but is unable to induct regional and local bias which
goes to build a sense of loyalty of staff towards the administration. We,
therefore, suggest that recruitment of staff in all mass and semi-mass cate
gories should be left to the Railway administration and the recruitment
should be decentralised to be made at the divisional level. We consider
that it will be adequate if a committee of two officers is appointed by the
Divisional Superintendent to make the recruitment of staff in various
categories at suitable intervals. The conditions which brought about the
setting up of the Railway Service Commissions do not, in our view, exist
any longer. We would further suggest that categories of staff other than
mass categories and those for which either the minimum qualification is
a university degree or a technical degree or diploma or which are other¬
wise specialised, as for example, nurses, school teachers, and printing press
staff may continue to be recruited through the Railway Service Commis¬
sions since in these categories the field of choice would have to be wider
and the divisions, leC to their own resources and with their restricted
jurisdictions, may not be in a position to recruit successfully.

Qualifications for recruitment to certain categories of technical staff

171. Many of the Railways, in their replies to the questionnaire,
emphasised that in view of the increasing adoption of costly and sophisti¬
cated equipment on the Railways there should be a comparable emphasis

on recruitment and selection of suitable staff for handling and maintain¬
ing such equipment. They have expressed themselves in favour of a higher
percentage of direct recruits with requisite technical qualifications drawn
from the open market. This they suggested in particular in regard to
staff engaged in the operation and maintenance of diesel and electric loco¬
motives and also modern signalling equipment. They felt that instead of
the present scheme of recruiting trade apprentices with matriculation or
its equivalent as the minimum qualification and then training them in
railway schools for long period of five years or so, it is advantageous to rec¬
ruit diploma holders and train them for a year or two.

172. We have already pointed out in a previous chapter that conver¬
sion training to steam locomotive drivers is not an easy task. Furthermore,
even after conversion training, absence of the necessary background to
understand electric circuitory diagrams etc. is wanting in men taken from
among steam locomotive drivers. The problem in regard to the minimum
technical qualifications for signal maintainers and signal inspectors is al¬
most identical. Here too, by and large, the Railways favoured laying down
of certain minimum qualifications for maintainers and for signal inspec¬
tors. In regard to maintainers, the view commonly expressed was that the
minimum qualification should be matriculation with science. As for inspec¬
tors, some Railways felt that the minimum qualification should be science
graduates with physics as one of the subjects. Others thought that recruit¬
ment to the intermediate grade of signal inspectors should be from
graduates in electrical or signal and telecommunication engineering. A
tew suggested that inspectors in the intermediate grade should be recruited
from among diploma holders and in the higher grades directly from among
engineering graduates.

173. Similar views were also expressed in regard to the recruitment of
staff for operating tie-tamping machine, foremen in the various sections of
the workshops and staff concerned with the operation and maintenance of
complicated hydro electric and electrical equipment.

174. While we do not consider ourselves competent to pronounce on
the minimum qualifications which any category of staff should possess, we
agree that for most of the categories referred to in the foregoing para¬
graphs, a good basic education and certain minimum technical qualifica¬
tions are essential so that the staff who are entrusted with the responsibility
of operation and maintenance of modern equipment are not raw and un¬
initiated hands but have an intelligent and effective grasp of the equip¬
ment they handle. We suggest to the Railway Board and Railway adminis¬
trations to evolve the minimum basic qualifications for each of these cate¬
gories. We have no doubt that in the present conditions, there would be
no dearth of men having the requisite qualifications.

Housing accommodation for essential staff

175. Wherever we went we received complaints from staff in regard
to non-availability of housing accommodation. Such complaints were parti¬
cularly common at stations with big concentrations of staff. Some com¬
plained that on account of the difficulty of housing accommodation, they
had to come to their place of work from long distances. Others said that
they had to chum up with co-workers or strangers in single room tenements
which made proper rest and family life impossible. Still others said that
the rents in the open market were exorbitant which placed them under
considerable financial strain.

176. We had, in our questionnaire, asked the Railways to indicate the
criteria for classifying the staff as essential for the purpose of allotment of
housing accommodation. We were surprised to find that there is no unifor¬
mity in the criteria adopted for classifying the staff as essential. According
to one Railway, the essential staff are “those whom the administraiton con¬
sider essential ’. Another has said that the criterion is the “importance
and nature of the duties of staff ”. One Railway considers that it is not
possible to lay down a uniform procedure as local conditions vary from
place to place. The other Railways have given principles for classifying
the essential staff in a very general way.

177. We had asked the Railways to furnish the list of the categories
of staff which they consider essential for the purpose of allotment of
housing accommodation. These lists make a highly interesting reading. On
one Railway, inspectors of station accounts, supervisor lost property office,
publicity assistants, vigilance inspectors, peons, daftries, compositors and
deputy superintendent of forms and stationery are cosidered essential. On
another, labour inspector, peons, painters and head draughtsman are in¬
cluded in the essential categories. Another Railway has included among its
essential categories, Hindi supervisor, luggage clerk and malaria inspector.
In the case of a fourth Railway, we found record sorter, tea-maker, clerk
in-charge of canteen and packers appearing among the essential categories.
Most of these categories cannot, in our view, by any stretch of imagination,
be considered essential for the purpose of priority in allotment of housing
accommodation.

178. Of the five Railways who furnished this information, the lists of
categories of essential staff run into as many as 355, 408, 97, 451 and 429
categories respectively. The other Railways did not furnish this informa¬
tion.

179. We do not know if the Railway Board considered it appropriate
at any stage to define the categories of railway staff who should be given
priority in the allotment of houses. Whether or not a definition exists, it is
clear that the categories we have referred to above and many more can by
no stretch of imagination be considered ’essential’. In our view, the essen¬
tial staff who should receive preference in the allotment of houses, should
be such personnel as are liable to be called for duty at any time, at short
notice or at odd hours, and but for whom train running would be imme¬
diately hampered.

180. Nor is there any definite principle being adopted in regard to
the allotment of the available housing accommodation as between essential
and nonessential staff. One Railway maintained that inter-se priority
among essential categories of staff was maintained though it has not spelt
out the details. Some other Railways stated that a lew quarters are ear¬
marked for certain posts and some for non-essential staff. One of the Rail
ways has prescribed that 90 per cent, of the housing accommodation should
go to the essential staff and the remaining 10 per cent, to non essential staff,
though it has qualified its remaks by saying that at times exceptions
are made. Another Railway has stated that though the rules provide that
non-essential staff should not be provided with any housing accommodation
until all essential staff have been provided, non-essential staff are allotted
quarters when circumstances warrant such a course.

181. In our discussions with the Railway Board, we were advised that
of the essential staff (which as pointed out below have not been defined by
the Railway Board) about 56 per cent, are housed and there is a shortfall
in quarters to the extent of about 3 lakh units for housing the remaining
essential staff. The approximate cost of constructing these houses—partly
for Class III and partly for Class IV—we w'ere told, would be approxi¬
mately Rs. 268 crorcs. As against this, during the last 6 years from 1963-64
to 1968-69, approximately Rs. 46 crorcs were spent on building staff quar-
t crs.

182. The Railway Board conceded that the classification of staff into
essential and non-essential categories had been left to the General Mana¬
gers and no definition of essential staff had been laid down. The
Board, however, favoured that amongst the essential staff, a higher priority
should be given to running staff like drivers, firemen, assistant drivers,
shunters, motormen and guards. To house staff in these categories alone,
we were told about 38000 quarters costing Rs. 38 crores would be required.

183. Considering that the available accommodation is inadequate to
house even the more essential categories of staff and that it would obviously
take a long time to build new quarters in significant number, we would,
first and foremost, suggest that the Railway Board should bring about uni
formity in the classification of staff as essential and non-essential. Since
even among the essential categories, priorities may be different and since
it may not be politic to deprive non-essential categories of housing accom¬
modation altogether, wc would suggest that a priority schedule may be
prescribed in more or less the same manner as a priority schedule for allot
ment of wagons. The first priority in housing should, of course, go to run¬
ning staff and the second priority to train passing staff like station masters,
switchmen, cabinmen, shunting janiadars etc. Signal maintainers who are
likely to he called out at night may also be included in the latter group.
The policy in regard to building of new quarters and their allotment
should be based on the priority schedule. Even of the existing accommoda¬
tion. as a rule, all quarters allocated for essential staff should, on vacation,
be allotted to essential staff keeping in view the priority schedule. Of the
other quarters falling vacant, 50 per cent should be allotted to the essen¬
tial staff so that a progressively higher percentage of essential staff is
housed in accordance with the priority schedule laid down.

184. During our discussions with the Board, it was suggested to us
that housing of staff should not be looked upon from a limited viewpoint
as the responsibility of the railways alone, but should instead be looked
upon as a social burden. The Board therefore suggested that to the extent
that money is spent on housing of staff, to that extent the Railway adminis¬
tration should get relief from payment of interest on capital. At the
moment, the Railways are required to pay at the rate of 6 per cent on a
total capital of about Rs. 3,000 crores. The Board’s suggestion was that if
relief from payment of interest can be given for the specific purpose of
building staff quarters, it may be possible to house the staff within a few
years and even if 4 per cent or 2 per cent relief can be given, it may be
possible to accelerate the rate of building of quarters substantially. In our
view, there is considerable strength in this plea and we would urge the
Government to give this matter their closest consideration.

Overtime working of staff

185. We had in Part I of our Report referred to the feature of over
time working of staff which results partly from shortage of sanctioned staff
and partly from inadequate leave reserves. The Railway Board observed
in regard to this that efforts to fill vacancies would continue and that orders
had been issued to the Railways to bring up the leave reserves upto the
minimum limits prescribed.

186. During the course of our tours, we received complaints on some
Railways that for the category of signal maintainers no rest givers have
been provided. When a maintainer is having his weekly rest, the main
tainer of the adjacent section is required to attend to the failures of the
other side also. There were also complaints that no leave reserves are pro
vided in the category of signal maintainers and that they feel great,
difficulty in getting leave. Many signal maintainers, in their evidence said
that when they reach home after the day’s work, they find a note waiting
lor them asking them to proceed by the first available train to attend to
a failure at a wayside station. Most of these witnesses said that they receive
such notes often and sometimes twice or thrice a week. They pleaded that
they should have a regular duty roster so that they were not required to
proceed on work after their duty hours.

187. We would suggest that the work of signal maintainers should be
properly job-analysed and if the nature and quantum of work is such that
they should he put on a roster of 8 or 12 hours, steps may be taken accord¬
ingly. The nature of work of a maintainer is such that he may be required
during night or day. If, however, the position is such that a man who may
have been working during the day is often required to attend to failures
during night also, a more permanent solution of the problem would have
to be found since wc have no doubt that in days to come, demands on the
time of signal maintainers would increase.

Hours of duty of running staff

188. We had, in Part I of our Report, pointed out that according to
the provisions of the Rajadhyaksha Award, the maximum hours of run
riing duty should be limited to 12 instead of 14. We had stressed that when¬
ever on any section chronic long hours seem inherent, steps should be
taken to change the crew at a suitable place so as not to infringe the pres
cribed duty hours. We had also referred to a recent directive of the Rail
way Board to the Railways that the overall duty hours of running staff at
a stretch should not exceed 14 from the time of ‘signing on’ to 'signing off

189. In their comments, the Railway Board stated that the cases of
running duty exceeding 12 hours had been brought down considerably in
recent years.

190. During our tours, some of the running staff complained that at
times they had to remain on duty well beyond 12 hours. Some stated that
on several occasions, even after they had given the prescribed two-hours
notice to be relieved, relief was not arranged as none was available.

191. We would urge that vigorous steps should be taken to ensure
that 12 hours running duty is ordinarily the limit and that cases of run
ning duty exceeding 12 hours are brought down further and are an excep¬
tion rather than a rule.

192. The National Federation of Indian Railwayraen had referred
forcefully to the feature of long hours on duty and suid that most of the
accidents occur when staff happen to be on duty for long hours. As it
happens, this observation is not borne out by facts. We had in the first
questionnaire addressed to the Railways asked them specifically how many
cases of accidents were ascribable to long hours of duty of staff according
to the accident enquiry reports. The Railways, after reference to indivi¬
dual accident enquiry reports, replied that there were no cases in which
the cause of accident had been traced to fatigue due to long hours on
duty. In all there have been only one or two cases in which the staff in¬
volved had been working beyond their prescribed duty hours when the
accident occurred but even in these cases the accident enquiry reports had
not ascribed the cause to fatigue arising out of long hours on duty.

193. The National Federation of Indian Railwayraen also pointed out
that under the hours of employment regulations, a continuous worker is
required to perform 8 hours duty a day, but for the payment of overtime
the basis of 54 hours a week and 231 hours in a month is adopted which
according to the Federation is ‘a strange mathematical approach’. We have
no doubt that the trade unions would already have brought up this matter
before the Railway administrations and the Railway Board. We, there
fore, leave it to the Railway Board to examine the contention of the Fede¬
ration.

Duty hours of station masters and assistant station masters at stations
manned by one station master and one assistant station master

194. A master pointedly brought to our notice during the course of
our tours was that at a large number of stations where a considerable num¬
ber of trains are dealt with there is only one staiton master and one assis¬
tant station master. The assistant station master at such stations, w r e were
told, works permanently at night,

195. We accordingly made enquiries from the Railways asking them
to indicate the number of stations which are manned by one station master
and one assistant station master and the number of trains which are dealt
with at these stations. The position which emerges from their replies is
indicated below: —

I’urtirulnrs '

Ron- I

■Hast-

Norih-

Nor-

Nor- South-

Sou-

West-

Total

of density of

tral

urn

orn

th ern

til

ern

train services

Hast-

Bast

(Jen •

Bast-

ern

Fron-

tral

©rn

tier

(/) Number of stations

dealing with 3 trains
(if) Number of stations

doaling with 4 to 6
trains

(Hi) Number of stations

1ft

231

dealing with 7 to 9
trains

236

(ii>) Number of stations

dealing with more than

9 trains

151

9 139

153

638

Total

7ft

144

196

88 139

116

•265

1,146

1%. On going through the duty shifts of staff at such stations we find
that leaving aside a few stations where the assistant station master per¬
forms duty in broken shifts or which are closed during night, at an
appreciable number of such stations, the assistant station master performs
duty for 12 hours covering the whole of night. The number of trains dealt
with during the duty hours of the assistant station master varies between 4
and 24 not taking into account a station on the Mughalsarai-Gaya section
dealing with 64 trains during the duty hours of the assistant station mas¬
ter.

197. The Eastern Railway explained that at most of the stations,
switchmen are posted in the cabins in 8 hours shift and they perform train
passing duties independently. The assistant station master on duty at night
is in overall charge of the station but he mainly attends to commercial
work which is very light. While this may be so, the slide control on the
home signal still rests with the assistant station master. This slide control
on the home signal with the assistant station master at double line stations
came to be introduced at stations with switchmen posted in cabins as a re
suit of the collision at Dumraon. Even with the modified slide control as
in vogue on the double line stations of Eastern Railway, the assistant sta¬
tion master on duty cannot but remain active and involved while trains
are passing his station.

198. Leaviug aside the double line stations, the information furnish¬
ed by the Railways shows that at a large number of single line stations
numerous trains are dealt with at night as for instance at stations on the
Uandikui-Rewari and Jaipur-Sawaimadhopur sections of the Western Rail
way and the Darblianga-Narkatiagaiyj section of the North Eastern Rail¬
way. According to the information furnished to us, from 7 to 12 trains
pass these stations at night. We have no doubt that train running of this
magnitude will be keeping the assistant station master fairly occupied leav¬
ing him hardly any periods of inaction.

199. During the course of evidence, some Chief Personnel Officers re¬
ferred to such stations as punishment stations. Others said that job analysis
conducted at such stations did not indicate that a jusification existed for
one more assistant station master. A Chief Operaing Superintendent who
stated that the assistant station master at such stations had spells of inac¬
tion during his duty,' also mentioned that during such spells of inaction
an assistant station master was inclined to go to sleep.

200. Since such an arrangement in effect means that the assistant
station master at such stations is continuously on night duty for months
and sometimes years, we have no doubt that this would be a source of con¬
siderable dissatisfaction. We had accordingly referred this matter to the
Railways. Some of the Railways stated that continual night duty is per¬
missible under the Railway Servants (Hours of Employment) Rules, 1961
and that such staff are classified as ‘essentially intermittent’. Even if such
an arrangement may be in accordance with the rules, we are unable to see
the merit of it. We would urge the Railway administrations to go into this
matter closely and find a satisfactory solution. In the absence of any other
alternative, perhaps it may be possible to reroster the duty shifts of the
assistant station master and the station master so that the shifts change at
midnight and at 12.00 hours noon, the assistant station master coming on
duty at midnight. This would permit the assistant station roaster to have
rest for a part of the night in bed. On sections where traffic is very light

and where there are such sta'.ions, the Railway administrations may also
examine the possibility of scheduling the trains in a manner that the sta¬
tion is closed during the period say from 22.00 to 04.00 hours so that the
assistant station master is not on duty throughout the night as a perma¬
nent measure.

Running Rooms

201. We had occasion to visit a number of drivers’ and guards' run¬
ning rooms during the course of our visits to zonal Railways. A complaint
often made to us by some drivers and guards was that though the running
rooms are meant primarily for guards, drivers, firemen and brakesmen,
very often travelling ticket examiners, who may be visiting the stations on
duty either singly or in squads, occupy the beds available in the running
moms with the result that drivers and guards do not get accommodation
on arrival. There were also complaints that several of the running
looms lacked basic amenities like mosquito nets, bed sheets in adequate
quantities, utensils and crockery.

202. We understand that as far as equipment of running rooms is con¬
cerned, a committee of senior officers had gone into the matter and had
prescribed certain yardsticks. These if rigidly applied should, in our view,
ensure that linen, utensils and crockery are available in adequate numbers
and other facilities like shower-baths etc. also become progressively avail¬
able for the comfort of the running staff.

203. As far as the accommodation for travelling ticket examiners and
conductors is concerned, we think that 'the administration would be un¬
duly harsh to them if it were to ordain that these categories of staff should
not have any accommodation for rest at the end of the journey. At the
same time it is important from the point of view of safety of train opera¬
tion that running staff in the categories of drivers, firemen and guards
should not in any circumstances be deprived of adequate rest at the end of
their journey. We would, therefore, urge that wherever a complaint of this
nature exists there should be separate arrangements for accommodation
for travelling ticket examiners, conductors, etc.

I informs

204. Innumerable complaints were made to us during our tours by
staff who are entitled to uniforms. Apart from complaints in regard to
non-supply or irregular supply of uniforms to some staff like firemen,
pointsmen, cabinmen, etc., there were some complaints in regard to the
uniforms not fitting properly and being either too tijght or too loose.
Some staff complained that the uniform supplied to them were so ill-
fitting that they made them look like clowns. Some even demonstrated
this to us by sporting themselves in such ill-fitting outfits. Some pointsmen
from the N.F. Railway represented that due to the seasonal characteristics
of that region waterproof coats and umbrellas should be supplied to them.

205. Some senior officers pointed out to us that certain categories of
staff who should be given uniforms were not so entitled. An Engineer-in-
Chief of a Railway, for instance, felt that gangmen should be provided with
boots, blankets, waterproofs, etc. On another railway, a signalling officer
stressed that the maintainers and khalasis of the signalling department
should be given uniforms.

206. We wish lo emphasize that when a decision is taken to provide
uniforms to certain categories of staff, non-supply or irregular supply of
uniforms thereafter is a source of needless discontent and frustration in the
staff. Furthermore, a uniform supplied, if ill-fitting, is a stigma on the
management. Even though in evidence certain Controllers of Stores had
stated that uniforms were being stitched in 20 to 2-1 standard sizes and an
employee should normally find one or the other of these sizes* fitting him,
we have a feeling that not much thought is given to this matter. After all,
if the commercial ready-made clothing industry finds it possible to cater
to most of the sizes by a proper reckoning, study of the average physique
and of the market, we do not see why the railway or its suppliers, by
similar methods of study should not find it possible to supply to each em¬
ployee a uniform which fits him more or less to size.

207. We are also of the view that for categories of staff whose work
is entirely out-door, raincoats may be provided. Overcoats may also be pro
vided to staff in the categories like shunting staff and gangmen wherevet
considered justified.

Chapter V

RULES, RULE BOOKS AND MANUALS

General Rul.es

208. We had in Part I of our Report referred to the decision of the
Railway Board appointing a Committee of officers to go into General
Rules and had endorsed their decision to revise the rules with a view to
simplifying the existing set of rules and bringing them uptodate. We had
remarked that the task is such as would require a detailed and thoughtful
study.

209. Rules for running of trains play a vital role in ensuring safety in
railway operation. That they should be simple and easy to grasp and re¬
member and be workable in practice goes without saying. In the evidence
tendered before us, there were occasional complaints that some of the exist¬
ing General and Subsidiary Rules are outdated or too complicated. These
views were also endorsed by some of the Principals of Training Schools
and a few senior railway officers—retired or in service.

210. We have been given to understand that the General Rules are
being revised wholesale and a fresh set of General Rules would be avail¬
able some time next year. While we would welcome a revised set of rules
which would provide for the technological changes that have taken place
in recent years and suit the requirements of the growing system and from
which all the out-dated rules have been weeded out, we would warn against
an effort at replacement of a body of rules by another radically and com¬
pletely different in the general scheme arid arrangement of the various
chapters and in the basic complexion of rules which has been built up in
the minds of staff during the course of their service.

211. In our discussions with the Railway Board we had expressed our
apprehensions. We were told that the need for revision was felt as some
of the rules were obsolete and impracticable, generally the language was
involved and there was plethora of subsidiary rules. We were told that
railways in advanced countries have general rules which are much more
compact and can be incorporated in small pocket books. The Board assured
us that when the new rule books were reaay, refresher training and various
other steps would be taken to see that the staff get acquainted with new
rules fully before they are called upon to work to them. We were also
told that during the course of revision which is being undertaken, it has
been found necessary to cut out the dead-wood and to eliminate certain
chapters relating to obsolete systems of working which are no longer in
force on any of the Railways and with the elimination of such chapters
and redundant rules, re-numbering of rules would be inevitable to main¬
tain continuity.

212. We can understand that with the weeding out of superfluous
rules, some re-numbering would be inescapable. If some way can be found
to retain the old numbers for at least the more important rules like those
pertaining to giving of permission to approach, taking off of signals, pass¬
ing of trains in the event of signals being defective, procedure for fog sig¬
nalling, etc., it would certainly impose a much lighter burden on the staff
than if they are faced with a set of rules in which there is no shred of simi¬
larity.

5 1

213. We, however, realise that the work of revision of rules has al¬
ready gone sufficiently ahead. Having expressed our apprehensions to the
Railway Board we leave it to them to see to what extent the general
arrangement of this basic vocabulary of staff concerned with train running
can be retained.

214. Bilingual Rule Books —We came across a few rule books on some
Railways which were bilingual and contained both the English and the
Hindi versions of General Rules printed together and bound in the same
volume. We are unable to see the merit of this practice. A bilingual rule
book would obviously be twice the size of a volume containing rules in
one language. A volume of General Rules is a part of the equipment of
certain categories of staff as the staff in these categories while on duty may
often be required to refer to a rule if necessity arises. Needless to say, any
member of the staff would, in case of need, refer to the rules only in the
language with which he is familiar; this may be English or Hindi or a
regional language. Having versions of the same rules in two languages bound
in one unwieldy volume has hardly any use for him and besides, such a
procedure would burden him with having to carry twice the weight and
the volume of the rule book.

215. We understand that this practice arose because of a directive
that all codes, manuals, etc., should be bilingual in character. The spirit
of this directive has obviously been misunderstood. There is justification
for publication of the statutory rules and ccxles in bilingual form when
required for reference but when a rule book is required to form the per¬
sonal equipment of the staff, insistence on its being bilingual is ill
conceived. We would suggest that rule books when these are intended to
be for the personal use of staff should be printed in English, Hindi or in
the regional language as separate editions and the staff may be supplied
these books according to their requirements.

Unified manuals

216. We had asked the views of the Railways whether they favour
publication of unified manuals applicable to all the Railways on mechani¬
cal engineering and electrical engineering practices and procedures similar
to the Indian Railways Way and Works Manual and the Indian Railways
Signal Engineering Manual. Most of the Railways have favoured the publi¬
cation of such manuals. Some of them, in fact, said that for want of uni¬
fied manuals on mechanical engineering and electrical engineering sub¬
jects, practices in vogue on the various Railways are different and training
of staff is hampered. We would recommend that arrangements may be made
for the compilation of such manuals. Efforts should be made to see that
there is as wide a ground of agreement among the Railways as possible in
regard to the practices and procedures proposed to be unified and incor¬
porated into the manuals.

Hand-books

217. We had an opportunity to see the handbooks brought out by
the Railway Board in recent years for different categories of staff, viz,
station masters and assistant station masters, guards, switchmen and cabin-
men, levermen and pointsmen, gatemen, yard staff and permanent way
staff. These handbooks appear to us useful and interesting. We find that
the whys and wherefores of rules have been explained and illustrated in
a simple and direct manner and the handbooks contain a lot of other in
formation which is of use to the staff in their day-to-day work
j,.TN3MofRailway— fi

218. We find that on the Railways of other advanced countries like
the Japanese National Railways, the American Railroads and the Canadian
Railways too, the usefulness of having handbooks for different categories
of staff is recognised. We would recommend that similar handbooks should
be brought out for the use of drivers, train examiners, route relay inter¬
locking maintainers and panel operators, CTC maintainers and panel
operators and staff concerned with maintenance and operation of diesel
and electric locomotives, train lighting staff, etc.

Chapter VI
PERMANENT WAY

219. The term permanent way has been applied to railway track in
all countries since the inception of railways. Actually the only permanent
feature of railway track is the alignment as every other component re¬
quires to be replaced periodically. Such renewals are necessitated by wear
and tear, obsolescence, increased loads and speeds and other factors. Thus
after regular intervals which depend partly on the traffic carried and partly
on local conditions, the so-called permanent way requires replacement.

220. The track structure including the bridges must not only be able
to carry adequately the loads imposed upon it but should be such as can
provide lasting service and afford a high degree of reliability against track
failures. Modernisation of track involves strengthening of the sub-structure
including ballast, provision of improved types of sleepers with better
fastenings, introduction of heavier and long welded rails and its mechani¬
sed maintenance and inspection. The endeavour of the railway engineers
is to provide a track that would need as little day-today maintenance and
attention as possible. The frequency and speeds of trains and axle loads
passing over it broadly determine the extent of work which is required
to be done on a track. The frequency and speeds of trains and also the
axle loads and the tonnage passing over the track of the Indian Railways
have been steadily increasing over the past several years. This necessitated
a reappraisal of the existing track standards. We find that a few years ago
the Rahway Board introduced new track standards specifying increased
sleeper densities and ballast cushion. Depending upon the ‘gross tonnage’
passing over a section annually, the present track standards for broad
guage are 90 lbs (44.61 kg per metre) or 105 lbs (51.89 kg per metre) rails,
sleeper density of N + 3 or N + 6 and ballast cushion of 8 inches or 10
inches. On the metre gauge the corresponding standards are 60 lbs
(29.76 kg. per metre), 69 lbs (34.23 kg. per metre) or 75 lbs (37.13 kg. per
metre) rails, sleeper density of N + 3 or N + 6 and ballast cushion of 8
inches or 10 inches. As on 1-4-1968, the length of track on the trunk routes
relaid in accordance with revised track standards was reported as under: —

Railway

(Figures in track
Broad
Gauge

(52 Kg
Rails)

kilometres)

Metro

Gauge

(37-13 Kg
Rails)

Central

1,551

Eastern

780

Northern

669

North Eastern

263

Northeast Frontier

Southern

584

South Central

599

, .

South Eastern

1,423

, 4

Western

Total

554

5,614

471

1.408

L/J(D)3Mof Railway

Rails

221. The “gross tonnage’’ of traffic passing over a section determines
the life of rails from the point of view of their renewal. Based on this even
the 105 lbs (51.89 kg per metre) rails which have a life expectancy of 400
gross million tonnes may prove uneconomical if the traffic to be
carried increases substantially since the time to replace them
will come much earlier than it would otherwise be. It is because
of this that 60 kg. rails are proposed to be used on sections which
carry traffic in excess of 20 gross million tonnes per annum. Since
mQSt of these sections carrying heavy density of traffic were relaid in the
recent past, the annual requirement of 60 kg rails at this stage is at a
level that their rolling has not been found to be an economical proposi¬
tion by M/s Hindustan Steel Ltd. The rolling and laying of 60 kg rails
would apparently therefore take some time to commence on the basis of
present planning. We consider that for providing a modernised track struc¬
ture such rails should be laid not only on sections carrying more than
20 gross million tonnes traffic but also on other trunk routes where the
density of traffic may not have reached that level but may be rapidly in¬
creasing.

Welding of rails

222. Continuous welding of rails is now a standard practice on the
railways in advanced countries because of the advantage of jointless track,
namely smoother and more reliable track, thus resulting in greater safety,
economy, speed and riding comfort. A rail joint is the weakest point of
the track which gets subjected to stresses consequent on action of the
wheels rolling over the expansion gaps. Cracks in rails occur more frequent¬
ly at the extreme ends than at any other point along their length. In addi¬
tion, the rail joints make travelling noisy and cause riding discomfort.

223. We find that railways in advanced countries have taken to the

E ractice of long welded rails in a big way. In Japan, the New Tokaido
ine covering a distance of 515 kilometres is laid entirely, including the
bridges, with long welded rails on considerations of running stability,
maintenance, etc. In Western Europe also the tendency is the same. In
France, until a few years ago, the length of the long welded rails was
limited to 800 metres but nowadays the French Railways are going in for
much longer rails. Lengths of 1400 and 1500 metres are common and the
longest length of welded rails is about 4 kilometres. In United Kingdom
also continuous welded rails are an accepted policy.

224. We have been advised that the Railway Board have approved,
in principle, the policy of long welded rails on trunk routes and main
lines on the Indian Railways at the time of complete track renewal on
the section. The Railways having considerable lengths of short welded
rails have been asked to examine the possibility of joining up these rails
to form long welded rails subject to other necessary conditions for laying
long welded rails being fulfilled. Since with long welded rails, the track
structure is subjected to stresses over longer stretches there is need for
better type of track structure comprised of good formation, adequate bal¬
last and suitable sleepers and fastenings. In view of this durable wooden
sleepers with anti-creep bearing plates have been recommended for use
on sections to be laid with long welded rails. For sections carrying a
quantum of traffic below ten gross million tonnes, steel sleepers can also
be laid. We have also been given to understand that if the rails are securely

held and the sleepers are firmly bedded in the ballast both at the sides and
at the end, the tendency of the rails to expand or contract with the rise
and fall in the temperature can be confined. De stressing of rails is also
provided at suitable intervals.

225. The normal length recommended for long welded rails is 0.8 kilo¬
metres or half a mile. Suitable expansion switches are provided at the extre¬
mities. We have also been told that, as a trial measure, a single stretch of
long welded track of about 11 kilometres has been laid on the metre gauge
section on North Eastern Railway.

226. The length of track laid with long welded rails on the Indian
Railways was 192 kilometres on 31-3-1968. During the year 1968T59, it was
planned that another 125 kilome res of long welded rails would be laid.
This to our mind is not a significant achievement.

227. During our discussions with the Railway Board, it was stated that
pre-stressed concrete sleepers tvere particularly suited for long welded rails
in view of their greater lateral stability and that the progress of laying of
long welded rails was limited by non-availability of concrete sleepers and
elastic fastenings. The Board, however, anticipated that the difficulties in
respect both of concrete sleepers and elastic fittings would be overcome
within a few months.

228. We hope that adequate and timely action will be taken so that
the Indian Railways go in for long welded rails extensively particularly in
view of the increasing facilities now available in flash-butt welding plants
and the experience already gained of thermit welding of rails at site.

Sleepers and fastenings

229. T hough the need for developing pre-stressed concrete sleepers had
been realised by the Railway Board a long time ago the plans to bring them
into use did not materialise for one reason or another. In Part I of our
Report we had expressed our scepticism about the expectations of the Rail¬
way Board that concrete sleepers would be available in a year’s time. Since
the time these hopes had been expressed, more than a year has elapsed and
we find that our scepticism was not without basis. We are now told that an
order for 5 lakh concrete sleepers has been placed with a firm and that sup¬
plies would be available soon. We would like to reiterate the need for a firm
and long-term integrated plan for the procurement of concrete sleepers as
well as the matching elastic fastenings so that the plan for modernisation of
track does not suffer on this account. We might add that pre-stressed con¬
crete sleepers are in fairly extensive use in other countries and they have
been found to be more durable than- timber and give greater track stability
because of their greater weight. The French Railways are using these on
their fastest and heavily used lines.

230. In rnnlv to i questionnaire addressed by us, the R.D.S.O. stated
that studies, investigations and experience of various railways in the world
have established that provision of double elastic fastenings to secure rails
to sleepers is a vital step in the modernisation of railway track. The use of
double elastic fastenings is, according to the R.D.S.O., not only safe but
also economical. On the Indian Railways the fastenings hitherto are mostly
of the dog-spike or steel-key type.

231. We have been advised that a decision has been taken to introduce
double elastic fastenings on the Indian Railways as expeditiously as possible.
Arrangements have been made for the indigenous manufacture of Pandrol
type of fastenings which are suitable for use with pre stressed concrete

sleeper* We are told that manufacture of these has been undertaken by a
firm in collaboration with another British firm. We consider it important to
stress that unless adequate steps are taken to ensure that the manufacturers
of elastic fastenings fulfil their commitment, it may not be possible to put
the pre-stressed concrete sleepers to use. A situation in which elastic fasten¬
ings lag behind the supply of concrete sleepers or vice versa would be indi¬
cative of inadequate planning and may result in infructuous expenditure.

232. It has also been stated that it is possible to devise a suitable fitting
to enable the use of Pandrol type of fastenings with steel through sleepers
Meanwhile, efforts are also being made concurrently by the RDSO to de¬
velop a new design of double elastic fastening which could be used both with
concrete sleeper and with steel trough sleeper.

233. Track maintenance —The maintenance of track on the Indian
Railways continues to be mainly manual, i.e. with beater, crowbar and
shovel. The instructions laid down in the Indian Railways Way and Works
Manual pertain to the various operations involved in manual track main¬
tenance like through packing, picking up of slacks and bad spots, attention
to bridge approaches, level crossings and points and crossings, screening of
ballast, clearing of side and catch water drains etc.

234. The primary operation in track maintenance consists of packing
of sleepers, correcting of cross and longitudinal levels and maintaining of
gauge. For this primary operation, different terms are used on different
Railways, such as “road opening”, “road overhauling”, “through packing”
etc. We also find that there is no uniformity on the Railways in regard to the
periodicity of this primary operation, which we hereafter call "through
packing”. The Chief Engineer of one Railway stated that two through pack¬
ings were done in a year. The Chief Engineers of two other Railways stated
that the track was through-packed only once a year. One Chief Engineer
indicated that in a year it was possible to undertake the second round of
through-packing to the extent of about 75 per cent.

235. We had, in Part I of our Report, pointed out that the number
of derailments on the broad and metre gauges attributable to track defects
during the 5 years, 1963-64 to 1967-68, was 18 and 14 per cent respectively.
Of these, more than one-third on the broad gauge and more than one-forth
on the metre gauge were caused by defective points, crossings and turnouts,
defective cross or longitudinal levels, badly aligned curves, incorrect super¬
elevation, kinks in track or incorrect gauge which are all manifestations of
unsatisfactory track maintenance.

236. It was stated in evidence that the gangmen of today do not possess
the physique which their predecessors used to have in olden days and as
such track maintenance by manual method is not as efficient as it used to
be. We were also told that poor physique apart, gangmen of today do not
have the same pride and interest in their work as gangmen used to have
years ago. No wonder, therefore, the maintenance of track has suffered
generally in recent years.

237. Within the limited time at our disposal, we carried out some in¬
spections on short lengths of track on some of the Railways travelling by

observation cars and we found ample evidence to support what we have
stated above.

238. We also inspected some curves and turnouts, bridges, sleepers and
sleeper fastenings ana a number of level crossings. Even though the observa¬
tions we made are necessarily of a limited nature, we are convinced that
what we noticed is generally applicable to most of the track.

239. In regard to sleepers and sleeper fastenings, we found that often
sleepers were out of square, keys of steel trough sleepers were driven rather
indiscriminately, sleeper spacings were not according to drawings, some rail
joints had nearly run on to joint sleepers due to creep, and correct tem¬
plates had not been used, the spiking being anything but trapezoidal.

240. The bridges which we inspected, though generally well-maintained,
showed that the work of providing guard rails on girder bridges and on
some small spans of pre-stressed cement concrete girders had yet to be com¬
pleted. Instead, guard rails had been provided on earth cushioned arch and
flat top bridges and culverts which, m our view, serve no purpose. Nor
were the guard rails fixed according to the instructions issued by the
Railway Board. Walk-ways, made out of unserviceable sheets had not been
provided on all the girder bridges. Such walk-ways are essential for the
train working staff to cross the bridges in emergencies. On one bridge, we
found no indication of bitumen or anti-corrosive paint having been used.

241. At some of the level crossings which we inspected we found that the
gate-lamps were without masking arrangements. The road approaches were
steeper than the limiting grade of 1 in 20 at ‘C’ class level crossings. The
discs fixed to gate shutters were not painted bright red and the catches and
stops for gate shutters were ineffective.

242. Even though our observations are limited in character, it is evident
from these that a lot needs to be done to improve the general standard of
maintenance of track. This assumes greater importance when we consider
that conditions have to be created to cope with the present and the future
trends of heavier train loads and heavier rolling stock running at higher
speeds. It is necessary that the staff entrusted with the maintenance of track
are enjoined upon to adhere to the instructions laid down in the Indian
Railways Way and Works Manual if the State of the track is to improve.
In our view, the programme of track maintenance round the year should
aim at the following: —

(i) The sequence of track maintenance operation should be arranged
according to the climatic periods so as to obtain the best results;

(ii) A reasonable turn over per unit labour for each specific track
maintenance operation should be ensured. Scientific work studies
of the various operations would, in our opinion, yield useful
results.

243. “Engineering renaissance ”—The General Manager, South Eastern
Railway, told us that a high standard of track maintenance had been achieved
on his Railway by systematising the methods of track maintenance. The
experiment, we were told, had led to a significant reduction in derailments,
more particularly in midsection. On account of the results achieved, the
Railway has termed its experiment "engineering renaissance”, and is extend¬
ing it further. The technique adopted is actually simple and is based on job
evaluation and merit rating. The Divisional Engineer has to make himself
thoroughly conversant with the conditions of his track and the calibre of
his men, the particulars of shortcomings existing and the remedial measures
required, contemplated Or planned for improvement. To this end, he is
assisted by a standard questionnaire, During the course of inspection by the

General Manager, the notes prepared by the Divisional Engineer with the
assistance of the Assistant Engineer in reply to the questionnaire are criti¬
cally examined. This critical examination facilitates formulation of the reme¬
dial action in a concrete and systematic manner. This method has helped
in locating ‘soft spots’ and in scientifically determining the fitness of mates
and engineering supervisors for shouldering their responsibilities.

244. It was suggested that the mechanics of the “engineering renais¬
sance” as enunciated by the South Eastern Railway should be tried by
other Railways also. A suggestion was also made that a seminar on the
achievement of higher standard of track maintenance by such means be
held with the General Managers as the participants. We see merit in the
suggestions made by the General Manager, South Eastern Railway and
suggest that a wider application of the mechanics of this ‘renaissance’ in
track maintenance may be made over some sections in order to get a
correct appraisal of its value and the results placed before the Track
Standards Committee.

245. Ballast and ballast diagrams —We find lack of uniformity in the

S raration of ballast diagrams. While some of the Railways screen the
ast section to full depth over a rail length at every kilometre, others
do so at every telegraph post. Some Railways carry out the screening tests
every year for preparing ballast diagrams: others do it at longer intervals
ranging from 3 to 15 or even 20 years. One Chief Engineer said that ballast
diagrams were not being maintained though the ballast requirements were
assessed on the basis of screening tests conducted by permanent way inspec¬
tors. The Indian Railways Way and Works Manual does not prescribe the
intervals at which ballast diagrams should be revised. The deficiency of
ballast can be ascertained accurately only by screening the ballast section to
full depth upto the formation and assessing the requirements of clean ballast.
We consider that the screening of ballast between two sleepers should be
done at every quarter of a kilometre taking care that the cores under the
sleepers are not disturbed. The results should then be plotted on a diagram
showing the clean stone ballast content in the track. The ballast diagrams
should be revised once in five years or so. We further suggest that the engi¬
neers should test check the requirements of ballast by permanent way in¬
spectors on the basis of ballast diagrams.

24fi. Clean ballast is a vital factor in safe and satisfactory behaviour of
the track. Where ballast is mixed with a disproportionately heavy percentage
of dirt, the even packing of sleepers cannot be possible. We would therefore
suggest that wherever the content of clean ballast falls below 35 per cent,
complete reballasting should be carried our.

247. Unserviceable sleepers in track —We find that the Railways gener¬
ally follow the practice of allowing 20 per cent unserviceable sleepers in the
track on wooden-sleepered sections. This practice is commonly confined
only to secondary and tertiary lines. Nothing is however specified in regard
to the distribution of such unserviceable sleepers. It is evident that with un¬
serviceable sleepers spread indiscriminately over the track, rails, rail joints
as well as the serviceable sleepers, are subjected to stresses and suffer damage.
We suggest that the percentage of unserviceable sleepers should be reduced
to the barest minimum. Eventually, any sleeper that is considered spike-
killed or otherwise unserviceable should be promptly renewed.

248. “Distressed” bridges —We had asked the Railways for information
in regard to the bridges considered ’distressed’ on condition basis or on
hydrological considerations. From the replies which we received, it is dear

that the Railways do not have a clear conception of what the term 'distressed’
bridges implies. The replies to our questionnaire showed that there were
in all 1247 distressed bridges by the end of 1967-68. In addition to this, the
Northeast Frontier and the South Central Railways indicated that they had
143 and 2439 ‘vulnerable’ bridges as they called them. The South Eastern
Railway indicated that their system had 1251 ‘problem’ bridges. Obviously,
therefore, there appears to be need for having a uniform conception of
when a bridge is to be treated as distressed on condition basis or on hydro-
logical considerations.

249. It is unnecessary for us to stress the need for rehabilitating the
distressed bridges even though temporarily safety may be ensured by im¬
posing speed restrictions. On this aspect, the Central Railway mentioned
that 8 per cent of their distressed bridges were being rehabilitated. The
Eastern and the Northeast Frontier Railways mentioned 25 to 30 per cent
and 15 per cent respectively. The other Railways did not furnish this in
formation. In their evidence, however, the Chief Engineers stated that some
of the bridges had been rehabilitated or rebuilt and in respect of others
either the action had been initiated or investigations were in hand. An
accurate assessment of the condition of bridges, we have no doubt, is a
continuing process. We urge that the bridges considered distressed should
be speedily rehabilitated on a programmed basis, a higher priority being
given to structures which require to be rebuilt on age-cum-condition basis.

250. Gangstrengths —We had in Part 1 of our Report referred to the
views expressed by the Railway Board that the assessment of gangstrengths
on the basis of the ‘modified’ formula resulted in high figures. We had
then been assured by the Railway Board that the whole question of de
termination of gangstrengths would be reviewed. On our side, we had
enumerated the factors which should be the basis for determining the
gangstrengths. We reiterate these here:

(i) Optimum standard of maintenance for each classification of
track based on the maximum speed and traffic density;

(ii) Schedule of work ‘round-the vear’ for the required optimum
standard of track maintenance;

(iii) Assessment of the requisite number of man-days, based on aver¬
age out-turn of work for each operation per man-day, to con¬
form to the specified ‘round-the-year’ schedule;

(iv) Additional strength required to cover such factors as require
extra attention over and above the normal; and

(v) The optimum length over which a given gangstrength can carry
out effectively and without default every track maintenance
operation.

251. In their evidence, several Chief Engineers held the view that
determination of gangstrengths should be left to the Railways. While we
agree that on account of local factors, gangstrengths do vary on different
sections of the Railways, we would suggest that the Track Standards Com¬
mittee goes into the matter and evolves a system of basic strength units ac¬
cording to track classification and the Railway Board are guided by their
advice. These basic strength units may be augmented by co efficients based
on local characteristics of various sections of the Railways.

«0

252. We would like to observe here that gangmen mostly live far away
from towns and at places where even education and medical facilities are
not available. To procure even the basic necessities of life at such desolate
places presents a problem. We realise that the difficulties are inherent in
the nature of work of gangmen and the problem does not lend itself to
an easy solution. Nonetheless, we would urge the Railway administration
to do whatever they can to ameliorate their conditions to the extent pos¬
sible. At the same time, we would suggest that while evolving the basic
strength of a gang, the working and living conditions of gangmen should
not be ignored.

253. Curves —The maintenance of curves to correct alignment includ¬
ing transitions, with appropriate superelevation and cant gradient in pro¬
portion to the optimum versine-gradient, needs special care. Experience
has shown that at times the running on curves is not as smooth and satis¬
factory as it should be. At present, realignment of rough-running curves
and local adjustments are carried out by the manual method of string¬
lining. The process of computing the slews after a versine survey, limiting
the slews to the very minimum and to zero at ‘obligatory’ points, is lengthy
and demands a fairly high order of expertise which is acquired only
through practice. The reconditioning of curves is indeed a matter in which
we think it will be greatly advantageous to mechanise calculations. The
manual process is time consuming and we consider that in addition to
safety considerations, it would be economical to mechanise the calculations.
We might mention that in the course of discussions with permanent way
staff on different Railways, we found keenness among them to have a
mechanised means of maintaining the curves to correct alignment.

254. Two instruments, namely the curve calculator and the curve
corrector are at present available for the purpose of calculations connected
with maintenance of curves. On some Railways, curve calculators are used.
After a versine survey in the field has been carried out, these versines are
fed into the instrument. The slews are calculated by adjusting the various
pinions. The results are then used in the field for correctly realigning or
adjusting the curves.

255. A curve corrector is an ‘on track’ portable instrument incorporat¬
ing the features of a curve calculator as well. This ‘on track’ portable
instrument records the versines to full scale continuously over a chord of
ten metres or so and' can be adapted for use on both the broad and the
metre gauges. The versine diagram identifies those points which require
correction. The recording device also indicates the slew required outward
or inward at each place of adjustment. The corrector is pushed by one
man from one end of a curve to the other. The versine diagram is then
scanned, to determine spots of faulty alignment. It is then pushed in the
reverse direction, stops being made beyond each place of adjustment until
the curve has been slewed according to the value indicated in the curve
corrector.

256. We would suggest that the Railway Board may consider the ques¬
tion of procurement of an adequate number of curve correctors so that an
instrument is available for each division on the Railways.

257. After accurate reconditioning of each curve with special emphasis
on the transitional approaches, curve alignment registers should be main¬
tained showing therein the versine and superelevation at each “station”,

The “stations” should be marked in white paint on the inner side of the
outer rail and the superelevation on the inner web of the inner rail. This
will not only facilitate supervisory checks but also minor adjustments as
and when required.

258. Turn-outs —According to General Rule 90, a speed restriction of
16 km.p.h. is prescribed on turnouts, The Rule as it stands makes no dis¬
tinction between the various gauges nor does it make a reference to the
angle of crossing, the track structure or the type of locomotive. Moreover,
when the turnout takes off from the inside of a curve, its radius in effect is
less than that of a simple turnout and would justify a further restriction
in speed.

259. These, therefore, are matters which require considerable study
and research to ascertain the stage at which dangerous conditions are liable
to occur and to lay down limits of safe speed. We consider that General
Rule 90 should be more specific and should be revised in the light of such
study and research. We might mention that on the American Railroads,
speeds upto 28 miles per hour (45 km.p.h.) have been permitted over the
turnouts of 1 in 12 and upto 20 miles per hour (32 km.p.h.) over the turn¬
outs of 1 in 8£. The gauge on the American Railroad is 4'—8jj".

Rail failures

260 As stated earlier, rails are subjected to pounding by, and suffer
abrasion due to, the action of the moving wheels. Development of cracks
and other defects in rails on the track can therefore not be completely elimi¬
nated. In fact, with the increase in speeds and density of traffic and axle
loads, the incidence of rail failures would tend to increase but for improve¬
ments in the standard of maintenance of track to keep such failures under
effective control.

261. We asked the Railways for figures of the incidence of rail fractures
during the five years 1963-64 and 1967-68. These figures are shown below:

Year

Total

1963-64

230

149

649

1964-63

297

138

722

1965-66

134

161

124

113

703

1966-07

370

172

146

350

1,181

1967-68

401

118

189

330

1,174

Total

1,432

738

609

288

137

141

986

4,429

262. It will be seen that the incidence of rail fractures has gone up
considerably during this period, having registered an increase of about
80 per cent in 1967-68 as compared to 1963-64.

263. Fortunately, derailments on account of rail fractures are rare due
to detection of the fracture in time or due to other fortuitous circum¬
stances. When cracks are detected, the rails are removed from the track be¬
fore rail breakage occurs. In one instance, in recent years, however-—
between Khandbara and Khatgaon stations of the Western Railway on
17-12-1966—a serious derailment of a passenger train involving loss of life
occurred due to a broken rail.

264. Most Railways stated, in their replies to our questionnaire, that
keymen during their daily patrol are able to detect a developing Flaw in
a rail. The gangmate and the gangmen are also expected to do likewise on
the stretches of track on which they work. During the annual greasing of
fish plates, the rail ends are examined for cracks which may have developed.
On the Eastern Railway, magnifying glasses are used for visual examina¬
tion of rails on the sections where failures are frequent. Another contri¬
vance in use for detecting flaws in rails by visual inspection is a small
mirror which, we are given to understand, is supplied to gangs on certain
sections for facilitating visual inspection of parts of the rails which are not
otherwise visible. Both the magnifying glass as well as the mirror have a
very limited utility as most of the flaws would remain undetected despite
the use of these devices. Nonetheless, we consider that these are small and
inexpensive devices and should be provided for the use of gangs wherever
failures are frequent.

265. If detection' of rail flaws must depend on visual inspection, then
it follows that to be of use the inspection must be thorough. If the inspec
tion is cursory, it is unlikely that even the more visible of the cracks would
be detected by the gangmates and other staff.

266. This, therefore, brings us to the question of more modernised
methods of track inspection which depend less on the human element. The
RDSO, in their reply to our questionnaire, have advised us that 890 kilo¬
metres of track were tested with ultrasonic flaw detectors by the Eastern,
the Western and the Northern Railways, mostly in co-ordination with the
RDSO. This, it was stated, involved 1,36,454 rails, of which 2,240 were
found to Ire defective. In 1968, ultrasonic testing of rails was conducted for
a month on 54 kilometres of track on the Allahabad-Mughalsarai section
involving 8,715 rails of which 173 were found defective. The defects con¬
sisted mainly of bolt hold cracks at the rail ends. Some other defects like
scabbing and transverse fissures were also found.

267. We have been advised that the Railways have, at present, 17
rail flaw detectors of various types like Krautkramer SZ 62, Mitsubishi
CM2 and Andigage TR 10. We were told that out of the various types,
Krautkramer SZ 62 was found to he the most useful and accordingly an
order has been placed on a Bombay firm who manufactures these. The
supplies are expected during 1969-70. The instrument will have a few im¬
ported components which along with the technical know-how are proposed
to be acquired from West Germany.

268. We consider that ulrasonic flaw detectors are essential for detec¬
tion of rail flaws and would urge that an adequate number of these should
be made available for use on the Railways. Annual testing would, in our
view, provide an effective practical check though more frequent testing
should be carried out where track conditions so warrant.

269. It may, however, be observed that a portable ultrasonic rail flaw
detector is capable of limited performance. It operates at walking pace
and necessarily its daily coverage is small. In advanced countries, there¬
fore, mobile detector cars have been devised. These cars patrol sections
of the main lines at regular intervals. Such cars are already in use on the
American main line routes. The Japanese National Railways use ultraso¬
nic rail inspection cars. The British Railways are also developing a self-
propelled vehicle with rail flaw detection equipment capable of testing
the rails at speeds of 25 m.p.h. (40 km.p.h.). Considering the network of
the railway routes in India which would need to be subjected to testing

by ultrasonic rail flaw detection equipment, we suggest that from now on
research and development of a self-propelled ultrasonic rail inspection car
should be taken in hand so that before long each Zonal Railway has one
for use on its system.

270. Most of the failures occur at fish plated rail joints. The surest
method of preventing failures at rail ends is to minimise joints by laying
long welded rails on trunk routes and main lines. We nave, in earlier
paras, already stressed this aspect. Apart from the stresses at rail joints,
there are other reasons for rail failures. On the manufacturing side, the
various possible causes, are brittleness due to chemical composition, in
correct cooling rate after rolling which gives rise to transverse fissures,
segregation, piping and slag intrusion. In use, raits are affected by increas¬
ing speed and density of train service, the packing of ballast under the
sleepers which may be inadequate or excessive—particularly at the joints
of fish plated track—and weather and atmospheric conditions which result
in corrosion. In addition, the age of the rail and the extent to which it
has been allowed to wear down also affects its liability to breakage.

271. We suggest that each case of rail failure, as it occurs, receives
close attention of the administration by way of chemical analysis, in¬
vestigation of the previous history of failure of rails of the same type and
age and other cognate factors. We are certain that if all rail failures are
subjected to this detailed examination, this will not only identify the
major causes of rail failures and the local characteristics of sections on
which the incidence of rail failures may be heavy but would also indicate
the direction in which immediate action is required.

Towards modernisation of track maintenance

272. As we have pointed out earlier, track on the Indian Railways is
still maintained by the traditional manual methods. These methods have
served the need for speeds, axle loads and density of traffic hitherto obtain¬
ing as best as they could but it is now realised that these methods have
limitations. With the increasing trends in speed and density of traffic,
particularly on trunk and main line routes, a higher degree of reliability
of track and better standards of track maintenance become imperative.
This, therefore, points to the need for adopting methods of track main¬
tenance which would not only be more efficient but also more economical
in the long run. The replies given by the Railways to our questionnaire
reveal a remarkable unanimity on the need for modernising methods of
track maintenance.

273. We had asked the Railway Board’s Office to work out the econo¬
mics of the various modernised methods of track maintenance. It has been
indicated to us that with mechanised maintenance, the saving in cost per
kilometre of track would be of the order of 30 per cent. A mechanical tie
tamper packs about 300 sleepers per hour though some of the new types
of machines have done up to 400 sleepers an hour. In case of measured
shovel packing, we have been advised that the saving in maintenance cost
per kilometre of track is about 34 per cent and in the case of directed
track maintenance approximately 20 per cent. These figures, we are told,
are based on the limited trials carried out so far.

Measured shovel packing

274. We had mentioned in Part I of our Report that the method of
measured shovel packing is already being tried on the Delhi-Howrah
route and that the method has been found to show encouraging results.

This method is widely used on the French Railways as a normal follow-up
maintenance erf the initial mechanical tamping which is resorted to for
initial packing immediately after the track is renewed. All subsequent
maintenance is by measured shovel packing. The system has been perfect¬
ed in France that gangmates are able to assess the lifts required at each
sleeper by merely listening to the sound produced by dropping a hard
rubber ball attached to an iron handle and noticing its rebound. Although
the gangs are equipped with the necessary instruments such as sight-
levels, gauges, dansometers, etc., for determining the actual lift required
for each sleeper, in practice, the gangs are able to do the work without
using the equipment.

275. The Railway Board have expressed the view that as further ex¬
perience is gained and more staff is trained, measured shovel packing will
be extended to main lines where it is not possible to introduce mechanised
maintenance in the immediate future. We note the decision of the Board
to extend the method of measured shovel padking in the light of ex
perience gained but would like to point out that on the French and some
other European Railways the method of measured shovel packing is ordi¬
narily used as a follow-up maintenance of the track after the initial
mechanical tie tamping. Even in the evidence tendered before us, it was
stated that if, in the first instance, a section of the track is subjected to
mechanised maintenance, its subsequent maintenance by measured shovel
packing is more satisfactory and lasts longer. We would like the Railway
Board to bear this in mind while planning for extending the use of
measured shovel packing.

Directed track maintenance

276. We had also referred to the method of directed maintenance in
Part I of our Report and said that the method: Was under trial over a
length of 250 kilometres over the North Eastern Railway. Further trials
were to take place over other Railways.

277. This method in effect is intended to replace the present practice
of routine maintenance of a section by clubbing together of some gangs
under the whole-time technical supervision of an assistant permanent way
inspector who makes out the day’s programme for track maintenance. The
actual requirements at various spots of the section rather than a pre¬
conceived schedule determine the work programme to be followed by the
gangs. The effective operation of the methods depends upon identification
of track defects and prompt decision being given in regard to rectification
of these defects.

278. In the evidence given before us, we did not notice any marked
enthusiasm among senior engineers for this new pattern of track mainten¬
ance. The main problem which would arise in the course of the general
adoption of directed track maintenance would be the transporting of an
appreciable number of gangmen with their heavy tools to and from the
site of work which may, for some men, be a dozen miles away from their
place of residence. It was stated in evidence before us that on certain
sections where directed track maintenance has been adopted, gangmen use
bicycles to reach their place of work. Apart from the fact that bicycles
can hardly be a suitable means of conveyance, particularly where heavy
tools have to be carried by gangmen, on several sections it may not be
possible to ply bicycles on the cesses. This means of conveyance is thus
hardly reliable. Moreover, where men have to be massed together miles

away from place of residence, their reaching the place of work on bicycles
would involve a loss of several man-hours. We, therefore, consider it an
essential prerequisite of directed track maintenance that suitable means
of transport should be available to convey gangmen and their equipment
to and from the site of work.

279. We would also like to mention that the supervision required for
directing the work of substantially larger groups of gangmen would have
to be provided by harnessing the supervision which is, at present, avail¬
able over shorter ganglengths. To what extent the benefit derived from
concentration of effort over a selected length of a few miles of track would
outweigh the disadvantage due to the withdrawing of gangmen and their
supervisors on many other sections of the track to form a part of directed
maintenance scheme and the resultant longer intervals between inspec
tions and slackening of supervision would have to be carefully considered.
In this context, we are reminded of trials carried out in the past to ascer¬
tain the optimum ganglengths which could be effectively supervised under
conditiqns of increasing traffic and of the fact that a four-mile length of
single line has for some years, been a limit. Conditions today, if anything,
indicate the necessity for shorter rather than longer lengths for inspection
and supervision to be effective.

Mechanniscd maintenance '

280. We had expressed the view in Part I of our Report that the out
put of mechanical tie tamping and ballast cleaning machines, when com¬
pared to the existing manual methods would justify their continued use.
We are told that at present on the Indian Railways, there is only a limited
number of ‘on track’ mechanical tamping machines and that the
indigenous capacity, for their manufacture is unlikely to be ade¬
quate in the years to come to meet the requirements of railways if
they were to adopt mechanised maintenance of track extensively.
At' present, the position is that about 45 per cent of the cost of a mechani¬
cal tie tamper involves foreign exchange. We, however, feel that this
factor should not deter the Indian Railways from working out a pro¬
gramme for switching over to modern methods of track maintenance on
its trunk and main line routes. The programme would have to take into
consideration the economics as well as the safety aspects of mechanised
maintenance and of other modem means of maintenance of track so that
an integrated plan is worked out and the actual effect of modernisation
is felt in the next few years.

281. We would mention that clean stone ballast for an adequate
depth below the sleeper is a prerequisite for the working of an automo¬
tive tie tamper. This was accepted by the Railway Board. This condition
obtains on some sections of the trunk routes but, by and large, on the
main and branch lines, the admixture of ‘muck’ with stone ballast is con¬
siderable. It was stated that it will take some time before all sections are
made fit for mechanised maintenance. The use of automotive tie tampers
will also involve a revised spacing of joint sleepers.

282. We might add that a concomitant of mechanised maintenance
is the availability of traffic blocks on busy sections so that automotive tie
tamping machines can be put to optimum use. We have, elsewhere in
this Report, referred to the need for framing the train time-table on such
sections in a manner that a block of time of about four hours can without

difficulty be allotted for mechanised maintenance of track and for main¬
tenance of other equipment. Unless, arrangements to this effect can be
ensured, the Railways, we apprehend, will be going in for heavy expendi¬
ture in acquiring the equipment in vain.

Inspection of track by modern methods

283. No less important than the maintenance of track is the inspec¬
tion of track by modem methods. The introduction of heavier trains run¬
ning at higher speeds makes it imperative that track parameters are
measured properly and a careful record is maintained so that track
irregularities can be identified and controlled and a high degree of track
reliability ensured.

284. We had in Part I of our Report expressed concern over the delay
in manufacture of track recording cars and had suggested construction
and equipment of test cars on a priority basis for use on the broad gauge
and of at least one test oar for the metre gauge. The project for manufac¬
ture of test cars has been on the drawing board for several years now but
the results so far have not been heartening. We feel that if Government
are unable to manufacture these test cars within a reasonable time they
should not hesitate to obtain them from elsewhere.

285. We were told by the Board that the Hallade track recorder did
not serve any useful purpose as it was unable to indicate the defects quan¬
titatively. We were also told that the Hallade track recorder was an out
dated instrument and that there was no advantage in going in for it any
more. It was said that the divisional engineer, the assistant engineer and
the permanent way inspector could as well spot out the defects in track
from the footplate. We appreciate the standpoint that a track recording
car is superior to the Hallade track recording instrument. It must, how¬
ever, be pointed out that the only track recording car in use is not design
ed to function at the high speeds at which the new fast trains are booked
to run. Even so, a test with the track recording car does not indicate the
alignment and gauge defects quantitatively. Twist and unevenness of sur¬
face are however accurately recorded. We consider it necessary that im
provements should be affected to enable the track recording car to record
all track irregularities at higher speeds accurately. As for the Hallade
track recorder, we had mentioned in Part I of our Report that periodical
testing of the track is done with this instrument and the charts are scruti¬
nised by senior engineers to ensure their correct interpretation and follow¬
up action in the field. This portable recorder is a useful instrument for
testing the riding qualities of the track a high speeds. The Hallade
chart indicates track irregularities qualitatively such as lateral oscillations,
low or high joints and sudden sags or humps. We, therefore, urge that
steps should be taken to acquire track recorders in adequate number so
that each division has one to itself. More than that, the divisional officers
and staff should be encouraged to use these instruments intensively and
should be trained in evaluation of the results recorded by these instru¬
ments so that the maximum advantage can be taken from them. We have
been advised that these instruments cost' only a few thousands and are
readily available.

Half yearly reports by permanent way inspectors

286. During the course of our tours we observed that the half-yearly
reports which used to be prepared by a permanent way inspector in a

prescribed form under the various heads namely track, points and cros*-
ings, bridges, level crossings, general maintenance, renewals, imprest of
stores etc. have since been discontinued. Instead, special reports on the
condition of permanent way are now submitted by the permanent way
inspector to the divisional engineer as and when they consider it necessary.
The form in which these reports are required to be submitted has not
been specified. In the evidence given before us, there wasi diversity of
opinion in regard to the usefulness of the six-monthly report. Some officers
thought that the reports were useful not only for the permanent way
inspector to make a complete appraisal of his charge once in six months
but also for engineers at all levels. As against this, it was stated that the
report was not serving any useful purpose since it had become a routine
and in course of time a bulky statement which was seldom read by the
people at the top. We leave it to the Railway administrations to see if
he special reports which are now required to be submitted serve the
purpose of giving to the divisional officers a fair idea of the condition of
the section and of the difficulties of permanent way inspectors; if not, it
might be useful to revive the six-monthly report, if necessary in an abridg¬
ed form, so that a systematic record of the charge of each permanent way
inspector is available in the divisional office for the use of the divisional
engineers.

Si ores workload

287. We had in Part I of our Report referred to the custody and
accountal of stores by permanent way inspectors. The Railway Board
advised us that the question of providing relief to permanent way inspec¬
tors was engaging their attention.

288. During our touts of the Railways, we found much evidence to
show that custody and accountal of stores not only claim a lot of time of
permanent way inspectors but are a source of considerable anxiety to
them and prevent them from giving their undivided attention, energy and
time to the maintenance of track—their principal job. The Chief Engi¬
neers of all zonal Railways were of the unanimous view that there is de¬
finite need for relieving permanent way inspectors of the stores workload.
The permanent way inspectors who tendered evidence before us stated
that more than the work involved and the time taken in attending to
stores in their charge, it is the mental anxiety which the possibility of
shortage in the accountal of stores gives to them which diverts their atten¬
tion from their main function and ties them down to their headquarters
when they should be out in the field.

289. The same difficulty was mentioned in regard to the stores charge
of signal inspectors. Some of the Chief Signal and Telecommunication
Engineers and several Divisional Signal and Telecommunication Engineers
stated that inspectors of the signalling department have perforce to spend
a good deal of their time and energy in looking after stores to the detri¬
ment of maintenance of signalling equipment.

290. We can appreciate the constant worry to which an inspector
whose duties are mainly in the field would be subjected by the thought
that a shortage in stores can land him into difficulties. The nature of his
duties require him to be called from his headquarters almost every day
and if he is burdened with stores charge he would be less disposed, if not
hesitant, to leave the headquarters.

L/J(N)3Mof Railway—7

291. The need for relieving permanent way inspectors of the stores
charge has already been accepted. We would suggest that the question of
providing relief to signal inspectors in the matter of stores workload
should be simil(irly examined. The relief provided should be in respect of
locked and fenced stores for which a person who not merely provides cleri¬
cal assistance but is senior enough to be fully responsible for the stores,
should be appointed. Where both a permanent way inspector and a signal
inspector are headquartered at the same station, the person entrusted with
the maintenance of permanent way stores can be concurrently responsible
for signalling stores. At other places, separate arrangements may be nkade.
But in all cases, permanent way inspectors and signal inspectors should be
relieved of t'heir stores charge and should be held responsible only for
the imprest issued to and required by them for their day-to-day work.

Chapter VII
LfEVEL CROSSINGS

292. We had, whiie dealing with the subject of level crossings in
Part I of our Report, occasion to emphasize two cognate questions. The
first was the necessity of taking a census of traffic at all level crossings at
least once in five years except in special cases, where earlier action might
be necessitated on account of any unforeseen development in the intensity
of traffic. The second was the necessity of laying down norms which would
help the Railway administrations in deciding whether an unmanned
level crossing should be manned or whether a manned level crossing
should be upgraded. The Railway Board have, in their “Views” on these
recommendations, observed that as far as taking of census of traffic at
level crossing is concerned, the matter is under consideration. As for pres¬
cribing norms, the Railway Board have not favoured this course on the plea
that local conditions would weigh greatly in each case. Having taken into
consideration what the Railway Board have stated in their “Views”, we
would like to reiterate what we had said in Part I of our Report.

293. Census —A census every five years appears to us necessary since
during this period, there may be such changes in the pattern of traffic
passing over the level crossing as would justify manning an unmanned
level crossing or upgrading an already manned level crossing. It would
in our opinion not be right to wait till an accident takes place at a level
crossing and only then take steps for taking a census of traffic. It may be
useful to have the collaboration and cooperation of the State Government
authorities while taking the census; but even if such cooperation is not
readily forthcoming, we still think that the Railway administrations should
go ahead with taking a census at all level crossings once in five years and
in due course convey the results to the State Government concerned in
cases where either the manning of an unmanned level crossing or the up
grading of the existing manned level crossing is justified.

294. Norms for deciding I he case for manning an unmanned level
crossing or upgrading a manned level crossing —Having stressed the need
for taking a census of traffic at level crossings, we also consider that norms
should be laid down for the purpose of deciding whether a case exists for
manning an unmanned level crossing or upgrading a manned level cross
ing. We find from the replies given by the Railways to the question¬
naire sent by us, that the basis for determining this is the quantum of
road and rail traffic passing over the level crossing reckoned in terms of
train-vehicle units, or ‘traffic moment’ as some Railways term it. This is
usually worked out by taking a census of the road traffic passing through
the level crossing for seven consecutive days. A pre determined weightage
is then allotted to the various types of road vehicles like motor vehicles,
motor trucks, bullock-carts, ikkas, cycle rickshaws etc. and the figures of
weighted vehicle units arrived at. The average weighted figure of road
traffic for a period of 24 hours is then worked out and multiplied by the
number of trains running over the section during the same period to
arrive at the train-vehicle units using a given level crossing. The figure
is then examined in relation to the norms prescribed to see whether man¬
ning or upgrading is called for.

295. In stressing the advantages of prescribing norms, we are not
unmindful of the fact that a rigid yardstick or standard is not necessary.
The yardsticks to be fixed try the Board may provide for deviations in the
light of local conditions on the merits of each case after taking into con¬
sideration the need for safety. The existence of norms would firstly pro¬
vide broad guidelines lor the Railways to work upon and secondly, ensure
uniformity of procedure at level crossings on the same or contiguous sec¬
tions having more or less the same quantum of road and rail traffic.

29(3. Level crossings are divided into five classes, namely, Special, A.
B, C and D. Special and A class level crossings are manned by three gate-
men working in 8-hour shif ts. B class level crossings are generally manned
by two gatemen working in 12 hour shifts; C class level crossings may be
either unmanned, where justified, or manned by one gateman. D class
level crossings are cattle crossings over which vehicles cannot pass and
these are naturally unmanned.

297. We have been exercised over those C class level crossings which
are manned by only one gateman who is required to work all the 24
hours. Normally, no man, however light his duties may be, can work or
remain alert for the passing of trains for all the 24 hours. It is evident
that he would have to be away from the gate for his various needs both
during the day and the night. If he is conscientious, he would shut and
lock the gate before leaving, but this would cause unnecessary detention
to road traffic; on the other hand if he is careless, he would leave the gate
open and the road traffic must fend for itself as if the crossing is un¬
manned. We are therefore unable to see the merit of a system in which
certain gates are manned by only one gateman. To us it appears neces¬
sary that there should be at least two men in 12-hour shifts at each
manned level crossing. Then alone can it be reasonably expected that the
gateman would perform the duties prescribed for him in a proper man¬
ner.

298. We had, in our discussions with the Railway Board, placed be¬
fore them the proposition that at all level crossings where at present one
man works round the clock, either two men should be posted where traffic
justifies this or alternatively the man must be removed and the gate may
become an unmanned level crossing. The Railway Board agreed to this
proposition readily. We would here reiterate that at C class manned level
crossings with only one gateman, an appraisal of the traffic using the gate
should be made speedily and depending on the result, the Railway admi¬
nistration should decide whether a case exists for having two men at such
gates or whether the gate should be unmanned. In no case, in our view,
should a gate remain with only one man on duty all the 24 hours.

299. Railway Safely Works Fund —We had referred, in Part I of our
Report, to the Railway Safety Works Fund and suggested that a part of
it—to the extent of 10 per cent—should be made available to the Rail¬
ways in case a decision is taken to man an unmanned level crossing or to
upgrade an existing manned level crossing. The Board had stated on this
recommendation that the matter had been taken up with the Ministry
of Finance and action was in progress for evolving a suitable procedure.
We hope that a satisfactory solution has since been found which would
enable the Railway administration to draw directly from this Fund upto
the extent of 10 per cent for the above purpose.

300. Warning devices at manned gates —Another question that
arises with respect to manned level crossings is the difficulty which a gate-
man experiences in the matter of ascertaining when a train is to pass.
Passenger trains run to a fixed time table. Even so, a passenger train may
be running late. Goods trains on the other hand do not have any fixed
schedule. The gateman is ordinarily unable to ascertain when the train
would pass his level crossing if it is situated in midsection. Except in
special cases, there is usually no communication between the gateman
and the station master on either side of the level crossing gate. The gate-
man is therefore left to himself to judge either by the sound of a whistle
or the far-off smoke or even some times from the aspect of a far-off signal
if a train is approaching. Very often none of these clues is there to guide
him and to play safe, he is apt to close the gate against road traffic on his
own judgement resulting in needlessly long detentions to road traffic. On
the other hand, were he not to adopt such a course, there is the likelihood
of an accident taking place should a train suddenly bear down upon the
level crossing taking the gateman and the road users unawares. To us,
therefore, it seems imperative that some form of communication between
the gate and the station on one side or the other should be available so
that the gateman knows in advance when a train is expected. This com
inunication may be in the form of a telephone or a warning bell which
can be rung to indicate to the gateman that a train is coming. Another
alternative would be warning bells which are actuated by approaching
trains but we realise that in respect of such automatic warning bells,
there is danger of theft or vandalism. We therefore favour some kind of
reliable communication between the gateman at a midsection level cross¬
ing and the station on one side or the other to save road traffic from long
and irritating detentions to the extent possible and at the same time to
ensure safety.

301. So far as level crossings within the station limits, whether inter¬
locked or nan-interlocked, are concerned, these are controlled by the
station master and in their case, reliance has to be placed on, the station
staff to minimise detentions to road traffic. For this purpose, the station
staff must be educated to see that signals are not taken off much in advance
of the approaching or the departing train.

302. Signals at midsection level crossings —We are informed that on
some sections which are equipped with multiple aspect signalling, a few
interlocked level crossings in midsection are provided with lower quad¬
rant two aspect signals. It is essential that there should be uniformity in
the type of signalling provided on a section. We suggest that at such level
crossings the lower quadrant two aspect signals should be replaced by
multiple aspect signals.

303. Barriers at manned level crossings —We are also of the view that
all important level crossings should be provided with sympathetic bar¬
riers of the lifting type equipped with eccentric wheels which actuate
bells and flashing lights indicating to the road users when the barriers are
being lowered or raised,

304. Automatic half-barriers —We had occasion, in Part I of our Re¬
port, to refer to the proposal for the installation of automatic half-bar¬
riers and had observed there that we would revert to the subject in the
second part. Tt appears that the proposal for the installation of automatic
half-barriers along with the provision of suitable types of bells and road-

(lashing signals was investigated by the Research, Designs and Standards
Organisation, It was intended to experiment with an automatic half-bar¬
rier as designed by the Research, Designs and Standards Organisation at
a level crossing in New Delhi and in some other places. For this purpose,
the RDSO had also sought the assistance of the Central Road Research
Institute who in turn had in consultation with the Railways and the civil
authorities at Delhi designed proper geometries for the approach roads to
the level crossings to ensure proper flow of traffic. Later, however, it ap
pears that the Board dropped the idea of installation of automatic half-
barriers on the ground that they were not suitable for Indian conditions.

305. Wc have given further thought to the matter. It would, in our
opinion, be worthwhile experimenting with automatic half-barriers to
see if they can successfully take the place of manned level crossings with
due measure of safety. The advantage of an automatic half-barrier is
that it affords the maximum freedom of movement to road transport. The
only snag lies in the possibility of the road user digressing from the
queue and zigzagging his way through the open half of the level crossing
and then coming to grief for his rashness.

306. In this connection, we consider it relevant to refer to the ex¬
perience of the cities where automatic red and green signals are installed
at crossroads. The experience, generally speaking, has been that signals
are obeyed and the road using public in such cities cross the road cross¬
ing in an orderly manner even if no constable may be on duty. What is
more significant is that there are no barriers on the road. Whenever the
automatic red light comes on, the traffic comes to a stop to let the other
stream of traffic pass. We are, therefore, disposed to think that at least
near about the cities where automatic light signals are in use at road
crossings and the road users have got used to them, the Railways may
with advantage and without undue risk experiment with automatic half
barriers.

307. We understand that the cost of an automatic half-barrier instal¬
lation is approximately Rs. 40,000. If eventually these automatic half-bar¬
rier crossings turn out to be a success, they would not only be more econo
mical inasmuch as the recurring costs of manning the crossings would
be saved, but would also be a source of considerable relief to the road
user since the hold-up to road traffic at such level crossings would be the
minimum possible.

308. We would stress that while installing automatic half-barriers,
conditions should be created by which breaking of the queues and zig-
zagging by road users is rendered difficult if not impossible. It may be
necessary to fix small raised and prouded blocks with a height of six to
twelve inches in the centre of the road on both approaches to the level
crossing for an adequate distance. If such blocks exist on either side, the
road user would ordinarily have no alternative except to obey the hai¬
rier. It may even be necessary to post a man at such level crossings in the
initial stages to watch the behaviour of the road user. Ultimately, of course,
the success of an automatic half-barrier depends on the good sense of the
road user who must realise that the installation is primarily for his bene¬
fit so that he is not detained at the level crossing.

309. We might add that in the United States of America, the expe
rience has been that the accident percentage at crossings provided with
half-barriers is the lowest. In Japan automatic lifting half-barriers are

extensively used on class I level crossings. In France too, automatic hall-
barriers have become popular. In the United Kingdom, unfortunately,
the installation of automatic half-barriers received a set-back after the
Hixon automatic half-barrier disaster in January, 1968.

310. We also suggest that provision may be made for the prosecution
of those road drivers who disregard the automatic half-barr'ers in the
same way as a road driver is liable to prosecution if he ignores traffic
lights.

311. We would like to add that if the experiment is to be made a
success, special care will have to be taken to guard against vandalism and
theft of ground equipment. It is important that wherever such automatic
half-barriers are installed and are actuated by approaching trains, the in¬
stallation works in perfect order and safety is not endangered. We were
told during our visit to the RDSO, that it is possible to instal the
ground equipment in a manner that it would be virtually impossible to
pull out anything worthwhile and in any event the installation is based
on the fail-safe principle. All the same we feel that should the installation
fail far too often, even on the fail-safe basis, the respect which the road
user may have for the installation is likely to decline resulting in the ex¬
periment not proving a success.

312. Future policy in regard to new level crossings —So far as the
future is concerned, it must be realised that level crossings are a necessary
evil—evil because they cause detentions to road traffic and occasionally
even to trains and also involve expenditure on gatemen whose labour is
in reality unproductive; necessary because it may not always be possible
to have under-bridges or over-bridges in all cases. Even so, we are of the
opinion that from now on the construction of level crossings should be
avoided wherever possible and reduced to the barest minimum. The need
for avoiding level crossings will, in future, arise wherever new railway lines
are laid across the existing roads or where new roads are made to cross
the existing lines. In such cases, the rule should be to provide either an
under-bridge or, an over-bridge depending upon the topography of the
place. A level crossing should be provided only when, for some unavoid¬
able reason, it is not possible to have an over-bridge or an underbridge.
The expenditure involved, we would stress, should not be the sole reason
for rejecting this course. The amount collected in the Railway Safety
Works Fund, would, we hope, be available to be utilised in future to
avoid the necessity of creating new level crossings particularly where
heavy road traffic is expected to pass over them.

Chapter VIII

SIGNALLING AND INTERLOCKING
Hole of signalling

31S. Next of course to a careful man, the one single factor which
more than any other makes for safety in train running is proper signal¬
ling. A majority of accidents take place because somewhere someone en
gaged in the running of trains makes a mistake. Signalling devices are in¬
tended to act as a check on such human fallibility. The techniques of sig¬
nalling have indeed advanced to-day to an extent that it is possible to
eliminate the chances of fallibility of the human element to a degree not
conceived of a few decadesi ago. Such modern techniques have helped to
promote not merely safety in train operation but also efficiency and speed.
The extent to which such techniques can be adopted as also the tempo
of advance is, however, limited by considerations of financial and mate¬
rial resources available.

314. The Estimates Committee of Parliament in its 33rd Report in
1956, had expressed the opinion that there was vast scope for improve¬
ment in working on Indian Railways by introduction of modern methods
of signalling and interlocking. Seven years later, the Kunzru Committee
had regretted that the provision of signalling on the Indian Railways
continued to be archaic in conception, lacked boldness in planning and
was halting in execution. We„ on our part, had not without sufficient
reason, remarked in Part I of our Report that the progress in the intro
duction of modern signalling on the Railways had been slow. Despite
such critical comments, however, we find that the position continues to
be disturbing.

315. With a view to examine if signalling is receiving its due share
of importance we had made a brief survey of the investment made on the
principal categories of developmental works including modernising of
signalling equipment on the Indian Railways during the three years
1965-66 to 1967-68. The investment on signalling and interlocking works
vis-a-vis the investment on the principal categories of development works-—
budgeted and actual—is shown below:-—

(Figures in millions of rupees)

Year

Total investment on th
Principal categories of
development works

e In vestment on signal¬
ling and interlocking
works

Percentage of 3 to 2

(i)

(2)

(3)

(f)

Budgeted

Actual

Budgeted

Actual

Budgeted

Act u a 1

1965-66

2641-61

2822-91

105-79

102-52

4-0(1

3-63

1966-67

2:168-40

2202-08

116-47

99-43

4-92

4-52

1907-66

2265-

2002-02

111 - 45

98-52

4-92

4- 92

Note—-The development works selected for the survey are shown below—

(i) Rolling stock.

ft/.') Machinery and plant.

(iii) Track renewals.

( iv) Bridge works.

(«) Traffic facilities.

(ft) Signalling and interlocking works.

(/’tt) Workshops.

( viii ) Electrification and other electrical works.

(ix) New line*.

(x) Restoration of dismantled lines.

(ad) Other specified works.

316. These figures bring out dearly the inadequate appreciation of
the role of modern signalling in promoting safety, economy and efficiency
in railway operation. Of the total capital expenditure on the principle
categories of developmental works undertaken by the Railways, only
about 5 per cent fell to the share of development in signalling. On most
of the Railways, the proportion ranged from 4 to 6 per cent. This in our
view is inadequate.

317. A further analysis of expenditure on different types of signalling
development works is shown in Annexure IV. Summarising this analysis
under three main heads, viz., modern signalling, other sjjgnalling develop¬
ment works and telecommunication, the percentage of expenditure on
each to the total expenditure on signalling and telecommunication works
during the 3 years 1965-66 to 1967-68 was as under: —

Year

Modern signalling

works

Other signal ling
development works

Tel ecommuni cat ion

Budgeted

Actin' 1

Budgeted

Actual

Budgeted

Actual

i 905-63

38-31

39' 40

56- 30

56-58*

5-39

4-02

1900-67

55'00

54-47

37-88

40-77

7-00

4-76

1967-68

46-81

47-08

3515

31' 11

18-04

18-81

(The e figures do not include those for the Smith , - , as-ern Railway as this Railway did
not furnish the requisite detaills.)

318. It would be seen that even out of the expenditure on signalling
development works—budgeted as well as actual—a substantial portion
is on “other signalling development works’’. The expenditure on modem
signalling techniques viz., track circuiting, route relay interlocking,
colour light signalling, automatic train control, centralised traffic control
and automatic block system, works out to less than half the amount. We
consider that this imbalance reflects not merely a lack of appreciation on
the part of the Railway administrations of the role of modern signalling
from the point of view of safety but also a lack of realisation of the fact
that unless signalling keeps pace with developments in other fields, the
Railway administrations would be unable to realise fully the advantages
of developments in other fields and would be unable to put to the fullest
possible use their growing assets.

8*2

319. It may perhaps be argued that the present allocation for moder¬
nisation is adequate taking into account the resources for indigenous
equipment. As would be seen in subsequent paragraphs, the hopes which
the Railways entertained about the private sector to whom they had
turned somewhat belatedly, developing indigenous manufacture of
sophisticated signalling equipment and due to which they forewent deve¬
lopment of capacity in a workshop of their own have not materialised.
At the same time, these expectations seem to have conditioned their think¬
ing so as not to tgo in for imported equipment. In the evidence tendered
before us, several senior railway officers admitted that signalling on
Indian Railways could be put into better shape if import of equipment
was allowed until indigenous capacity got built up. We cannot help remark¬
ing that in the name of indigenisation, proper integrated planning in the
field of modern signalling has been lacking. We would urge that without
any further loss of time, a firm plan integrating the requirements of the
Railwaysi the indigenous resources available and the imports needed
should be drawn up with boldness and vision for the next five to ten years
and the programme of each year should reflect the attention which
modern signalling deserves but which it has not quite received in the
past. Only then will the Railways be able to make up for the time lost
in this vital field.

320. Having made these general observations, we now proceed to
deal with some specific aspects of signalling and telecommunication.

Visibility of signals

321. Colour light signals —The importance of proper visibility of sig¬
nals is hardly a matter which we need dwell upon. During our tours, it
was repeatedly represented to us that the visibility of colour light sig¬
nals is far better than that of the conventional oil-lit signal lamps. Colour
light signals throw a beam of light of such intensity that their indications
are clearly seen by drivers from a long distance even in bright sunshine.
The penetrating nature of their beams makes it possible for the drivers
to see the signals and identify them even in adverse weather conditions.
We recommend that on sections where electric power is available, colour
light signalling should be provided as rapidly as possible.

322. Some drivers whom we met during our tours complained about
the bad visibility of even colour light signals during day time. We were
given to understand by some senior railway officers during their evidence
that the quality of the indigenously manufactured lenses and bulbs has
not been altogether satisfactory in the past and that orders have been
issued for rigid inspection even if it meant large scale rejection. We con¬
sider that a rigid check should be exercised on the quality of lenses and
bulbs used in colour light signals.

323. Semaphore signals —A retired Member of the Railway Board
stated during his evidence that one of the reasons for the disregard of sig¬
nals by drivers was that signals were not correctly focussed and adequately
lit. Drivers also complained frequently in their evidence about the dim
light of oil-lit signal lamps. We find that the question of electric-lighting
of semaphore signals had been dealt with in a meeting of the Signal Engi¬
neers’ Sub-Committee of the IRCA as far back as November 1938 and at
that stage it was thought that the question was essentially an economic
one, Since then, little seems to have been done on this score.

324. We were, while on a tour of the South Eastern Railway, inform¬
ed by the Divisional Superintendent, Khurda Road that electric lighting
of semaphore signals at a few stations on that division had been experi¬
mented with and had shown satisfactory results and that it was proposed
to go ahead with this transition at other stations where electricity was
available. The failure of power had been catered for by stand-by batteries.
We urge that the Railways explore the possibility of switching over to
electric lighting of semaphore signals wherever it is feasible and that eco
nomic considerations should not be allowed to stand in the way where
the question of improved lighting and visibility of signals is concerned.

Pre-warning of stop signal

325. As we had pointed out in Part 1 of our Report, the policy of the
Railway Board is to provide multiple aspect signalling of the upper quad
rant or the colour light type as may be suitable on trunk routes on a pro¬
grammed basis. Since the advantages of this type of signalling over the
conventional two-aspect lower quadrant signalling have already been re¬
cognised and established, we suggest that a more progressive policy of
providing multiple-aspect signalling at stations not only on trunk routes
but also on main line routes should be followed.

326. On a considerable length of track on the Indian Railways, the
two-aspect lower quadrant semaphore signalling is still in use on sections
with .heavy density of train services and ever-increasing speeds but these
have not been programmed for provision of multi-aspect signalling. Wc
were given to understand that it has been proposed to separate the war
ner signal from the outer signal on some sections and to place the warner
signal at a distance of 1.5 kilometres outside the outer signal so that the
driver gets a pre-warning before he comes upon the first stop signal. As
an interim measure, we consider it as a step in the right direction but
stress that the ultimate objective should be to go in for multi-aspect sig¬
nalling on such sections.

Braking distances and Sighting boards

327. Braking distance trials and resiting of signals —We had, in
Part I of our Report, suggested that the distance between the distant and
the first stop signals on high-speed routes and the length of the signalling
section in automatic signalling territory should not be less than the emer¬
gency braking distance. We were informed that while braking distance
trials on the broad gauge had been conducted, those on the metre gauge
were in hand. We hope that the results of these trials are now available
and would soon be reflected in the resiting of signals.

328. Several witnesses who tendered evidence before us stated that
the minimum sighting distance for the first stop signal without pre¬
warning in two-aspect lower quadrant territory should be the braking dis¬
tance plus the distance equivalent to the reaction time. Whatever the sys¬
tem of signalling, it goes without saying that signals must be clearly
visible to a driver from as far off as possible so that the driver is able to
observe and obey them in time. For a long while now, the need to resite
signals has been linked up with the braking distance trials in progress.
We would urge that this matter which seems to have been long delayed
should receive the urgent attention of the Railway authorities.

329. Sighting boards —Sighting boards are provided alongside the
track to alert the driver of the approach of the first stop signal. On some
sections, separate sighting boards are provided for passenger and goods

tiains. These sighting boards are at present painted with ordinary enamel
paint which has very limited visibility. We were told that efforts at indi¬
genous development of reflective strips were being made. We find that
such efforts have been going on for the past several years and not only has
no finality been reached in the matter but the indications are that indi¬
genous development may not be possible for many years. We consider that
improved visibility of sighting boards is essential so that the attention of
the driver is drawn to them particularly at night and at times when visi¬
bility is impaired. We have been given to understand that at the cost of
a small amounL of foreign exchange it would be possible to import suit¬
able reflective material like scotchlite. We consider that in matters which
involve safety, considerations of foreign exchange should not be allowed
to come in the way. In any case, for import of reflective material as we
have pointed out, an insignificant amount of foreign exchange would be
involved.

330. It also occurs to us that in addition to sighting boards, such re¬
flective material may be used with advantage on whistle boards, road signs
on the approaches to level crossings, speed and caution boards and other
indication boards which ordinarily are not lit at night.

Hlock instruments

331. During the course of our tours, we found that there is multipli¬
city in the types of block instruments in use on double and single line
sections of the various Railways. On some Railways a large number of
different types of block instruments is in use on various sections. In the
zonal training schools which we visited, we had evidence to this effect. From
the viewpoint of staff responsible for maintenance and operation of block
instruments, diversity in the types of block instruments is disadvantageous.
We suggest that action should be taken to see that the types of block in¬
struments in use on any one Railway should be reduced to the minimum.
It would he advantageous to have one type of hlock instrument for use on
double line and another on single line. This would incidentally help in
weeding out the types of block instruments which have become obsolete
and have outlived their useful life.

Centralised operation of signals and points

332. Panel interlocking —We find that already on the Railways, ul
some of the busy way-side stations where electricity is available and colour-
light signalling is provided, panel interlocking wherein the operation of
signals and points at the station is centralised and controlled from a panel
installed in the station master’s office is provided. This not only increases
the element of safety by providing electrical controls on points and signals
hut is an economical means of regulating trains at the station since the
station master has complete control over movement of trains within the
station and can operate the points and signals single-handed. We recom¬
mend that panel interlocking with colour light signals may be provided
at stations on electrified sections and on such noil-electrified sections wher¬
ever electricity is available.

333. Route-Relay interlocking —At important, junction stations and
terminals where a large number of trains are dealt with, ordinarily the
control of train movement is spread over a wide area and a large number
of persons are associated with the movement of a train. Coordination bet¬
ween various persons and cabins increases the possibility of human failure
and in any event such coordination becomes time-consuming. Route relay
interlocking aims at abolition of dispersal of the control among various

s>5

persons. Apart from substantial saving in staff, it also permits safer and
more efficient train operation. The central operator is able to direct the
movement of trains within an enlarged area by setting the routes and
operating the signals.

334. We find that in recent years, some progress has been made in
providing route relay intierlocking at important junctions and stations.
We had, during our tours of the Railways, occasion to visit some of the
route relay interlocking cabins. We recommend that the pace of provision
of route relay interlocking should be accelerated not only to speed up
operation but to enhance safety.

335. Of course, with the concentration of so much work at a single
focal point, serious dislocation of traffic may take place, should a minor
fault like a track circuit failure occur. We would therefore suggest that
in yards provided with large route relay installations, subsidiary signals
which serve the purpose of calling on signals may be provided below the
relevant stop signals with post-type telephones to save detentions which
accur on account of piloting of trains when a stop signal becomes defective
or inoperative. This in our view would be a safer practice than the piloting
of a train and would also help to eliminate the undesirable practice of
bridging of the contacts which the staff resort to at times in order to save
detentions.

336. We also find that so far the route relay installations provided at
different stations have been of different types having been installed in
collaboration with different firms. The route relay interlocking installation
provided at Kurla was in collaboration with a British firm, at Madras
Central with a Japanese firm, more recently at Delhi with a French firm,
at Howrah with a Swedish firm and more recently at Kalyan with a German
firm. Each firm has used its own design of equipment and circuitory. This
arrangement poses serious problems of availability of spares and the need
to stock a variety of equipment besides training of staff. In our view, the
need for standardisation of designs, specifications and requirements for
future installations of this type is peramount.

337. Centralised traffic control —A step further is the centralised traffic
control system or CTC for short, in which the movement over a whole
section is centralised at one focal point. Here the CTC Controller or
Operator is the central figure to whom the position of various trains on
the section controlled by him is conveyed automatically and instantaneously
on a large-sized panel in. front of him. He not only makes decisions in
regard to the movement of trains, their crossing or precedence or where to
shunt a train and when but also sets the route and clears the signals as
required. The installation is a serijes of small power-relay interlocking!
units stretching over a hundred miles or more with their individual con¬
trols concentrated at the central control point. The electrical controls and
relay interlockings are so designed that it is virtually impossible for the
operator to set conflicting routes which would endanger the safety of trains.
In addition, an automatic train graph recorder records the movement of
trains and should a driver pass a signal at danger the graph enables a check
to be made. The knowledge of this continuous watch is sufficient to keep
the driver vigilant.

338. So far we find that CTC has been installed on only three sections.
On the US Railroads, however, CTC we understand has in practice been
found to be so efficient in operation that some main line sections have been
converted from double line to CTC operated single line. We consider
that CTC is an important development to meet the demands of greater

safety and efficiency and we hope that in future whenever due to an in¬
crease in the density of train service on a single line section the question
of creating additional capacity is examined, the case for installation of
CTC would be duly considered keeping in view the additional safety factor
which such installation, provides.

339. During our tours on the North Eastern and Northeast Frontier
Railways, we had occasion to visit the Centralised Traffic Control rooms.
We found that the present system does not indicate to the CTC Operators
the nature of the train on the section, that is, whether it is mail or express,
a passenger or a goods train. All that he knows from the panel is that there
is a train on the section. The description of the train helps the Panel
Operator to regulate the different types of trains in the matter of recep¬
tion, crossing or precedence. We were advised that a ‘train describer’ was
not an essential component of CTC but was definitely an aid to the Panel
Operator. We were informed that a ‘train describer’ which would simul¬
taneously convey the direction of movement was proposed to be provided
on the CTC Panel on Madras-Tambaram section of the Southern Railway.
We were also advised that the addition of this feature can be made at a
small cost. We consider that such ‘train describees’ should form part of
CTC wherever it is installed.

Track circuiting

340. Train collisions as we have seen take place mainly due to the
carelessness or forgetfulness of either the station staff or the train driver.
As to the former, the solution, apart from interlocking, would lie in track
circuiting. A track circuit is an electrical device to prove the occupancy
of a line or a section so equipped, by a train or a vehicle. The length of
track on which the occupancy is required to he proved is isolated elcctri
tally from other lines. The track is equipped with necessary electrical con¬
nections and circuitory so as to give visual indication to the cabinman
and/or the station master as to its occupancy or otherwise. On our Rail
ways, the electric isolation of the two rails from one another is achieved
by the use of wooden sleepers though in some foreign countries steel trough
or pre-stressed cement concrete sleepers with pads made of insulating ma¬
terials inserted between the rails and the sleepers are also in use. The
visual indication provided not only shows whether the line is occupied but
the circuitory also ensures the locking of the relevant points and prevents
the relevant signal or signals from being taken off as long as the line is
occupied.

341. The Railway Board had adopted the policy of providing track
circuiting on a phased programme years ago. We obtained from the Rail
way Board information in regard to the provision and programming of
track circuiting of stations on the trunk routes, main lines and branch
lines. The detailed position indicating the planning yearwise is shown in
Annexnre V. Summarised, the position is as under—

<)u trunk On in..in On branoh
routes lines lines

1,052 1,873 2.303

27!) 108 33

271 23

38 8 2

135 r>

A. Total number of block stations

15. (») Number of block stations provided with track circuit¬
ing

1. On nil passenger linos

2. On run through main lines ..

Number of block stations at which track circuiting
work is in progress—

1. On all passenger lines

2. On run through main lines .,

On trunk On main On branch
routes 1 inns lines

(Hi) Number of block stations which arc programmed for
provision of track circuiting during 5 years from
1908 (1!) to 1972-7.'!

1. On ull passenger lines

112

2. On run through main lines ..

775

(iv) Number of block stations to be provided with track
circuiting but not yet programmed •

1. On all passenger lines .. .. •

2. On run through main lines

Grand total of B (/) to (Hi )—

1. On all passenger lines

429

122

3fi

2. On run through main lines ..

1181

342. It will be seen that of the 1,652 stations

on the

trunk

routes.

429 stations all the passenger lines would be track circuited and at 1,81
stations the run through lines by the end of 1972-73. Similarly of the 1,873
stations on the main line routes, 122 stations would be track circuited on
all the passenger lines and 35 on the run through lines. By the end of that
period, 36 stations out of 2,363 on the branch lines would also have been
provided with track circuiting on all passenger lines. In other words, four
years from now there would still be 42 stations on the trunk routes, 1,716
stations on the main line and 2,327 on the branch lines without track
circuiting.

343. The Railways in. their replies to our questionnaire have indicated
that the main difficulty in extending track circuiting is the shortage of
wooden sleepers. The present policy of the Railway Board, as pointed out
in Part I of our Report, is to provitle track circuiting on run through lines
of stations on the trunk routes at the rate of 200 stations per year. During
our discussions with the Railway Board we were told that during the last
two or three years, track circuiting could be provided on run through lines
at the rate of 130 to 140 stations annually and that financial stringency
and the shortage of wooden sleepers had militated against fulfilment of
the target. It was pointed out to us that the first draw on the available
supply of wooden sleepers had to be renewals on sections which are already
track circuited and that only the balance can be used for extending track
circuiting on new stations. It was further pointed out that bringing into
use of pre-stressed concrete sleepers would have only a marginal effect in
easing the shortage of wooden sleepers since concrete sleepers being thicker
than wooden sleepers are not entirely suitable for track circuiting in yards
as they create problems in respect of drainage, overhead structures, etc.

344. We cannot help expressing our doubts whether the Railways are
addressing themselves to the task with the necessary sense of urgency. We
had in Part I of our Report expressed our apprehensions about the Rail
ways’ ability to achieve the target of 200 stations per year laid down by
the Railway Board. As already pointed out, the target has not been achiev¬
ed. Our apprehensions have thus come true. It also appears to use that
too much is being made of the shortage of wooden sleepers and that this
factor instead of being a source of anxiety has, in course of time, come to
be a cause for complacency. If wooden sleepers are in such short supply,
it is inescapable that the Railways must concern themselves with alterna¬
tive means to overcome the hurdles in extending the use of track circuiting.

If the shortage of wooden sleepers is as real as is made out to be, it is
equally apparent that this is a situation with which the Railways have
to live in the years to come. Means, therefore, would have to be found
to do without more wooden sleepers. We have no doubt that with more
energetic research and experimentation, it should be possible to evolve
suitable alternatives and overcome the hurdles in extending- the use of
track circuiting. We also feel that the difficulty pointed out in regard to
the unsuitability of concrete sleepers in yards would apply to only a few
places and, by and large, it should be possible to overcome this difficulty.

345. We made a study of the collisions which took place during the
year 1967-68 and the six months of the 1968-69 (ending September, 1968)
due to reception of trains on occupied lines separately on trunk routes,
main lines and branch lines and at large stations and big junctions and
wayside stations and small junctions. The results of the study are indicated

below—

Trunk rout'ii

(a) Mu junctions and large stations —

(i) Number of collisions per 100 Mg junction* and large stations •• 8-9

(it) Number of persons killed ., .. •• None

(Hi) Number of persons injured ,, • • 1 >

(re) Loss in rupees per collision .. ,. ,, l!s.7,7!)_’

(h) Wayside stations and small junctions —

(•/') Number of collisions por UK) wayside stations and small junc¬
tions .. .. .. .. . . 0* ttn

(t/) Number of collisions per 100 such stations on the run through

linos . . .. . . .. O' 21

(Hi) Number of collisions per 200 such stat ions on linos ot her than

the run through lines .. .. .. ,, 0-12

(fa) Consequences of collisions on run through lines—

(1) Number of persons killed .. .. 7

(2) Number of persons injured .. .. .. ,.56

(3) Loss in rupees per collision . . . . ,. Rs, <17,038

(r) Consequences of collisions on lines other than run t hrough lines—

(1) Number of persons killed .. .. .. .. None

(2) Number of persons injured . . 8

(3) Loss in rupoes per collision .. .. .. Rs.ll.694

Main Line routes

(a) Big junctions and large stations —

(») Number of collisions per 100 big junctions and large stations 1 • 4
(«) Number of persons killed .. .. .. .. None

(Hi) Number of persons injured .. .. .. ..1

(if) Loss in rupees per collision .. .. ,, .. Rs.12.7IH)

(b) Wayside stations and smatt junctions

(i) Number of collisions per 100 wayside stations and small junctions O' 25
(ti) Number of collisions per 100 such stations on the run through

lines .. .. .. .. O' 17

(iil) Number of collisions per 100 such stations on lines other than

the run through lines .. .. .. .. 0-08

(ir) Consequences of collisions on the run through lines—

(1) Number of persons killed .. .. .. ..57

(2) Number of persons injured . . , . .38

(3) Loss in rupees per collision .. .. ,. .. Rs.270.600

(«) Consequences of collisions on lines other than the run through
lines—

(1) Number of person# killed .. None

(2) Number of persons in jured .. .. .. None

(3) Loss in rupees per collision .. .. Bs. 2 210

Branch lines

(a) Big junctions and large stations —

Number of collisions .. .. .. .. .. Nil

(b) Wayside stations and small junctions

(i) Number of collisions per 100 wayside stations and small junc

tions .. .. .. .. .. . . 0-2

(»'») Number of collisions per 100 such stations on the run through

lines .. .. .. .. .. .. 0 1

(Hi) Number of collisions per 100 such stations on lines other than

the run through lines .. .. .. .. . . 0‘ 1

(in) Consequences of collisions on the run through lines—

(1) Number of persons killed .. .. .. .. None

(2) Number of persons injured .. .. .. .. 10

(3) Loss in rupees per collision .. .. .. Its. 3-0l)9

( a) Consequences of collisions on lines other than the run through
lines—

(1) Number of persons killed .. .. .. 17

(2) Number of persons injured .. .. 3

(3) Loss in rupees per collision .. ., ,, .. Bs. 33.028

<146. The study brings out the followings—

(i) The frequency of collisions at stations on trunk routes is higher
than at stations on main lines and branch lines.

(ii) An identical patter is revealed in. the frequency of collisions
and the consequences flowing from them on both the trunk
routes and main lines, namely, that

(a) the incidence is higher at big junctions and large stations
than, that at wayside stations and small junctions;

(b) the consequences of collisions at big junctions and large
stations are less serious than those occurring at wayside
stations and small junctions;

(c) the incidence of collisions at wayside stations and small
junctions is higher on the run through lines than that on
the lines other than run through lines;

(d) the collisions occurring on the run through lines result in
more disastrous consequences than those occurring on lines
other than the run through lines.

(iii) On the branch lines, the consequences resulting from collisions
are generally speaking serious. It may be remarked that on
branch lines the trains generally stop at all stations. The line—
whether run through or loop—on which a collision occurs is.
therefore, not of much significance. The consequences of colli
sions at stations on the branch lines can be serious because
wooden bodied and non-antitelescopic coaches are commonly in
use.

hj J {N)3MofRailway—8

347. Based on this study we would suggest for the consideration of
the Railway Board the following guidelines and targets in respect of pro¬
vision of track circuiting—

(i) First priority should be given to run through lines at wayside
stations on the trunk routes and to all passenger lines at im¬
portant junctions on both the trunk routes and the main lines.
This work should be completed during a period of four years.

(ii) Thereafter run through lines at stations on main line routes
and all passenger lines at stations on trunk routes should be
track circuited. This should be accomplished in a further period
of four years.

(iii) In the last phase, all passenger lines at stations on main line
routes and at important junctions on branch lines should be
taken up for track circuiting. This work should be completed
in another two years.

348. In other words the aim should be to track circuit all passenger
lines and run through lines on. trunk and main line routes and also at
important junctions on branch lines within 10 years.

349. Track circuits to extend to block clearance points —At present,
track circuiting on run through lines at stations is provided between foul¬
ing marks only. While this no doubt reduces dependence on the human
element insofar as clearance of the line between fouling marks is to be
ensured, it does not guarantee that the line is clear beyond the fouling
mark. Should a train or a vehicle be standing beyond the fouling mark,
or on an adjacent track fouling the reception line track circuiting as exist¬
ing at present is unable to prevent a collision.

350. It will be recalled that in the years 19(33-64 to 1967-68, out of a
total of 207 collisions, 32, that is about 16 per cent, occurred due to fouling
marks not being clear. Such side collisions can often be disastrous. Track
circuiting must, therefore, in our view, cater for such contingency. We
realise that this would mean, considerable additional circuitory on either
side but when subsequently passenger lines other than the run through
lines are track circuited the cost would be correspondingly reduced. In
our view, therefore, for track circuiting works of run thiough lines in pro¬
gress at present as well as programmed for the future, the policy should be
to track circuit the lines between block clearance points. As for the run
through lines which have already been track circuited between fouling
marks, the work of track circuiting between block clearance points should
be taken up as soon as possible.

351. Failure of track circuits —The efficient working of all modern
signalling installations like route relay interlocking, track circuiting in
station yards, automatic block system and centralised traffic control de¬
pends to a large extent on the efficient maintenance of track circuits. For
this it is important that the materials used in the installations are reliable
and durable and the staff who handle them have the requisite training and
knowhow.

352. The evidence tendered before us shows that a large percentage
of track circuit failures on the Railways is due to—

(a) activities of miscreants who cut bond wires and track circuit
leads;

(b) theft of materials like batteries, relays, etc;

(d) failure of insulated rail joints.

353. The most important component of a track circuit is the insulated
rail joint. A good insulated rail joint should be non-hygroscopic, provide
satisfactory insulation between the two rails and should withstand wear
and tear under traffic conditions. At present the joints in use are (a) planed
steel fish plates with insulating channels, bushes and end posts made of
vulcanised fibre or nylon, (b) fish plates made of compregnated wood known
as Permali fish plates.

354. In reply to a questionnaire which we had addressed to them, the
RDSO stated that the use of nylon as insulating material had, on investi¬
gation, been found satisfactory in avoiding failure of track circuits due
to crushing of insulated joints. The use of nylon as insulating material
and of nylon bushes had been recommended since the incidence of failures
in track circuited lay-outs with joints using vulcanised fibre insulation was
inordinately high. The Railways have been progressively adopting the use
of nylon as insulating material.

355. During our discussion with the Railway Board we were informed
that nylon insulation was giving good service and lasted for about six.
months. The deterioration caused bv weather conditions was coriiparativelv
less.

356. Permali fish-plates —Permali fish plates are made of laminated
compressed wood. The insulation between rail ends is provided by the end
post at the rail expansion gap. These have been approved for use in track
circuits at speeds not exceeding 16 km. p.h. Originally, such fish plates
were imported. These were in use for a long time on the Central Railway.
We were told that they withstood heavy stresses at high speed and that
the average life was five years. The Chief Signal and Telecommunication
Engineer of a Railway stated before us that from the electrical point of
view, a Permali fish plated joint is completely foolproof and such a joint
has been successfully used in the United Kingdom and on the Continent
on high speed routes. He was of the view that Permali fish plates were
superior to any other type of insulated rail joint. Another Chief Signal and
Telecommunication Engineer, however, expressed the view that Permali
fish plates manufactured indigenously lasted for less than a year and were
not entirely satisfactory. The permanent way engineers on their part do
not favour Permali fish plates for use on high speed routes.

357. During our discussions with the Railway Board, we found that
the use of Permali fish plates had been allowed on other than high speed
lines since the Track Standards Committee had not approved of their use
on faster routes. We were told that these were also being tried on a section
on the metre gauge and a decision will be taken on the basis of results.

358. The reasons for the decision to discontinue the use of Permali
fish plates on high speed routes, which was apparently taken on. the re¬
commendation made in the 35th Report of the Track Standards Committee
in 1958, are not clear to us. We understand that M/s Permali of the United
Kingdom have since developed improved types of impregnated wooden
fish plates and their counterparts in India would be in a position to manu¬
facture fish plates of an improved quality. We suggest that the Railway
Board should reconsider this matter in the light of the reported improve¬
ment in the design and strength of Permali fish plates for use as insulated
rail joints on track circuited sections for high speeds.

Automatic Train Control

359. We made an analytical study of collisions and derailments caused
by drivers passing signals at danger and the consequences flowing from
such accidents for a period of a year and a half, i.e. the year 1967-68 and
the first six months of 1968-69. The results of the analysis are summarised
below—

(Figures of lls. in thousands)

(-oil Lions Derailments

t -- - —-■*“- r ~*--—-- “-a

Num- Casualties Loss in Ks. Num- Casualties Lobs in Rb.

S. Nature of line her /— — K > ber -

No. of Ki I- Inju- of K-ii- ln-

ro]]i- led red do- led jured

sions rail- .

meats

Broad tjautfc

1. Trunk minus ..

] 5

151

2,370 19

433-34

2. Main lini's

0-26

7-68

3. Brunch lines

1,375-40

1,288-70

M < lre (ft m <fti *

1. Trunk mutes ..

108

118-71

, .

. ,

211-20

3. Main linns

2-00

183-88

3. Brandi lines

27-75

••

1-53

360. It is clear from the figures tabulated above that a substantial
number of collisions and derailments took place due to the drivers’ failures.
Furthermore, a majority of such accidents have taken place on the trunk
routes where the speeds are high and trains run through most of the
stations.

361. Even the best signalling system would be futile if a driver dis¬
regards a signal showing danger aspect. The only reliable method of en¬
suring against the drivers’ failures to observe and obey signals in time
is the automatic train control or ATC in short. The system is so designed
that a driver receives an audio visual warning in his cab in regard to the
aspect of the stop signal that he is approaching and should he pass the
signal at danger, automatic application of brakes takes place. This is made
possible by the installation of two separate devices, one on the track which
is governed by the signal ahead and the other on the locomotive which
the track device activates and sets into operation according to the aspect
of the signal. ATC, thus, on the one hand assists the driver in the proper
observation of the signals and on the other guards against the possibility
of an accident which may arise from failure of the driver in this respect
by automatic application of brakes.

362. We remarked in Part I of our Report that we had been advised
that the installation of ATC on the Howrah-Gaya-Mughalsarai section was
expected to be completed in stages by March, 1970, and that ATC installa¬
tion was also planned for suburban sections in Calcutta and Bombay areas
to be followed by other routes. The Works Programme for 1969-70 does
not seem to confirm that the work on the Howrah-Gaya-Mughalsarai section
would be completed by March, 1970. Nor does it show that the work hr
the Bombay area is yet planned. During our discussions with the Railway

Board, we were told that the work is in hand and that the system would
cover the Rajdhani Express and the mail and express trains running over
the section. It was stated in these discussions that the results ot the system
would be watched and that a decision about the expansion ot the system
would be taken based on the experience gained. In these discussions, the
Railway Board conceded that the system would have to cover goods trains
also if high standards of safety are to be attained.

363. We might add that during our tours, while discussing the subject
with railway officers, we observed a certain diffidence and mental reserva¬
tion among some of them that the provision of ATC might generate a
sense of complacency in the minds of drivers and this coupled with the
possible pilferage of track equipment may ultimately result in a lower
degree of safety in train running. We consider this misgiving ill-founded
as ATC is not to be considered as a device aimed merely at making up for
lack of vigilance on a driver’s part but rather as a check on his alertness.
Should the driver fail to act on the restrictive aspect of a signal, the device
comes into operation but for each lapse on his part the driver becomes
accountable. Furthermore, ATC is already in extensive use on railways
in advanced countries and as far as we know, it has not been the experience
of any country that because of ATC the locomotive driver has grown care¬
less. As for the possibility of pilferage, we are told that the type of equip¬
ment used is such that it has little monetary value to invite pilferage. Be¬
sides, were the track equipment to be stolen or interfered with, the system
being provided on the Howrah-Mughalsarai section is such that the driver
on approaching a signal at ‘off’ (i.e. Proceed aspect) would not get a bell-
warning when he ought to get one and the absence of the bell-warning
at the signal would indicate to him that something is amiss and that he
must report at the next station for early rectification. It would only be in
the contingency when the ground equipment is missing and the related
signal is showing danger aspect that the driver would not get the hooter¬
warning. As stated earlier, the system as visualised rendering as it does the
driver accountable each time he fails to respond to the ATC warning,
should keep him alert and attentive and an alert driver would no doubt
take care of such contingencies.

364. In their replies to the questionnaire which we had addressed, some
of the Railways expressed the view that ATC should be provided on routes
with speeds higher than 100 km. p.h. Others advocated installation of ATC
at higher speeds. There was, however, a general consensus of opinion that
ATC should cover all trains and not merely mail and express trains.

365. On the British Railways, ATC is provided on lines on which
speeds of 75 miles per hour (120 km, p.h.) and above are permissible and
where there is a substantial number of express passenger services as well
as on lines having dense suburban passenger service. In the United States,
the regulations of the Inter-State Commission forbid speeds in excess of
80 miles per hour (130 km. p.h.) unless ATC is provided. In Germany, ATC
is provided on sections with speeds higher than 100 km. p.h. On the
Japanese National Railways, the entire system has ATC.

366. We feel that provision of ATC is a matter on which there should
be little diversity of opinion. As a means to prevent accidents, it is only
second, if even second, in importance to track circuiting. In such matters,
however, we cannot go by the criteria adopted by the British and the
American Railways since what may be medium speeds in their thinking
are high speeds for us. We consider that the lines on which speeds of 100
km. p.h. or over are permitted should be provided with ATC and should

cover all trains including goods trains running on the section. A scheme
of priorities should be worked out for the trunk routes. Furthermore, in
the light of increasing train speeds and intensity of train services, parti¬
cularly after the introduction of fast trains like the Rajdhani Express, pro¬
vision of ATC has become a matter of necessity. We are conscious that
owing to financial considerations, the installation of ATC would have to
be proceeded with on a phased basis but the phasing too must be done
with a sense of urgency.

367. It was indicated by a senior signal engineer during his evidence
before us that the estimated cost for providing ATC for the first stop signal
only on the six trunk routes, namely, Delhi-Howrah, Delhi-Bombay, Bombay
Madras, Madras-Howrah, Bombay-Howrah and Delhi-Madras and covering
all mail, express, passenger and goods trains running on these sections would
be approximately Rs. 17 crores. We consider that finding funds of this

order should not present any serious problem for the Railway administra¬
tions.

368. ATC on automatic signalling sections —We would like to observe
here that some disastrous collisions have occurred recently on the automa¬
tic signalling sections due to the failures of drivers in not having observed
the rules for passing the automatic signal at danger. Obviously, provision
of conventional ATC would not be able to eliminate the risk of such colli
sions on sections equipped with automatic signalling since according to
rules a driver is authorised to pass an automatic signal showing red aspect
on observing certain conditions. We have been given to understand that the
ATC equipment being installed in the suburban sections in Howrah area
caters for this contingency. When a driver passes an automatic "signal at
danger, he must keep the speed of the train below 15 km. p.h. upto the
next automatic signal failing which a warning is sounded for five seconds
and thereafter automatic application of brakes takes place. We consider
that this type of ATC should be extended to other automatic sections in
Bombay, Calcutta and Madras areas.

369. Cab Signalling —On sections where high speed trains run, the
locomotive driver is under continuous strain trying to locate and interpret
the aspects displayed by the signals. We have been given to understand that
on such sections coded track circuits enable a continuous indication to be
given in the cab of the locomotive of the state of the line ahead and braking
can also be brought into action by the same means. This type of cab signalling
enables the driver to run the train with confidence and speed. We feel
that it is high time to undertake research and development in regard to
continuous cab signalling, however elaborate or expensive this may be so
that a greater degree of immunity from accidents can be achieved on such
sections. This would also be useful on sections where the visibility of
signals is not altogether satisfactory.

370. Manufacture of electrical signalling equipment —The Kunzru
Committee had strongly urged the establishment of a central signalling-
workshop by the Railways for the manufacture of electrical signalling equip¬
ment. On this recommendation, however, the Railway Board had stated
that the setting up of a signalling workshop was unnecessary as two private
firms in this field, had assured the Railway Board that they would be deve¬
loping adequate capacity for the manufacture of sophisticated signalling
equipment required by the Indian Railways. The Railway Board had said
that signalling technology was developing so fast that by the time the
manufacture of electrical signalling equipment could start in a railway
workshop, electronic signalling might well come into use.

371. For items for which the* Railways depend on the private sector
for supply, the effort should be to encourage more than one reliable source
so that not only are the benefits of competition obtained, but an evem
tuality does not arise where the Railway administration may be left high
and ary. We were told that in countries like Germany, Japan and France,
two or three firms of repute who are prepared to invest money in research
and development and who have adequate quality control are given assured
ortiers for manufacture of sophisticated signalling equipment. We suggest
that the Railway Board develop their thinking along these lines.

372. As for the supply of conventional signalling equipment, the evi¬
dence tendered before us showed that even though such equipment is indi¬
genously manufactured, qualitatively it has not come up to the required
standard. This is primarily because certain firms who have neither the re¬
sources nor the capacity to manufacture signalling equipment succeed in
getting the orders for equipment. Here too, we would like to observe that
the Railway administrations would be well advised to give orders to two
or three selected firms of repute so that these firms get interested in main¬
taining the requisite standards in the manufacture of equipment.

Maintenance and inspection of signalling equipment

373. Maintenance —The proper maintenance of signalling equipment,
like maintenance of any other type of asset, depends on an adequate supply
of spares and tools of proper quality, adequately trained staff and also
adequate time in which to do the job. We have already dealt wilh the
question of recruitment and training of maintainers and other signalling
staff. In a subsequent chapter we deal with the shortage and poor quality
of spares and tools. As for the availability of time and opportunity for
maintenance of signalling gear under traffic conditions, we would like to
observe that during our tours of Railways we received several complaints
that the signalling staff are unable to undertake repairs to the signalling
gear at the required time due to the non-acceptance of disconnection notices
by the operating staff. We were told that often when disconnection notices
were presented to the operating staff for disconnecting the gear for main¬
tenance purposes, such notices were riot accepted on the plea of heavy
train work and the possibility of detentions of trains. An elaborat’e pro¬
cedure has to be followed for the safe passage of trains whenever signalling
gear is disconnected. The transportation staff are therefore inclined to
defer the matter to the extent they ran in their anxiety to pass the trains.
On the other hand, several of the signalling staff who tendered evidence
before us stated that a substantial number of failures of signalling equip¬
ment was because of their inability to give their attention to the signalling
gear due to this factor.

374. We attach great importance to this matter as we feel that the
signalling staff would be apt to resort to short-cut 1 methods for maintenance
of signalling gear unless they get blocks of time in which to maintain the
gear. The problem assumes great importance at busy stations where the
signalling gear is relatively more intricate and needs intensive maintenance.
We, therefore, suggest that the whole problem of maintenance of signalling
gear should be thoroughly examined and a practicable and safe procedure
evolved so that the necessary 'time blocks’ are available for the mainte¬
nance of signalling gear without much difficulty. Provision for this should
in our opinion be made at the time the time-table of a section is being
made. If the train time-table makes adequate provision for such mainte¬
nance blocks this would not only facilitate maintenance of signalling gear

but' would also allow for mechanised track maintenance a reference to
which we have made elsewhere and where too we were told difficulty is
experienced in making evailable time blocks. By making provision in the
train time-table for an integrated maintenance programme, the mainte¬
nance not’ only of signalling gear but also of track by automotive machines
wherever in use and of other overhead installations at stations and on sec¬
tions could, with advantage, be undertaken in a coordinated manner. We
understand that the Railway Board have already sent out a directive that in
planning for the development of capacity on trunk routes the sectional
capacity should be worked out on the basis of 20 hours of train running
in a day so t'hat the remaining four hours can be set apart for maintenance.
We commend this step as one in the right direction and reflecting consi¬
derable foresight.

375. Inspection —The Indian Railways Signal Engineering Manual
specifies that the signalling equipment at stations or in block cabins should
be inspected once in two weeks by each maintainer and that all gear within
the charge of an inspector or an assistant inspector should be inspected
once every month. Where there are one or more assistant inspectors posted
under one inspector, the provisions in the Manual lay down that rhe gear
at each station in the charge of an inspector should be inspected by him
at least once in three months. It is also prescribed that the Divisional
Signal and Telecommunication Engineer/Assistant Signal and Telecom¬
munication Engineer must inspect and test all signalling equipment under
his charge at least once in 12 months.

376. These provisions have been in the Manual ever since it was first
published and when on most of the divisions, Assistant Signal and Tele¬
communication Engineers were posted as the divisional signalling officers.
Since then the traffic density on several sections has increased considerably.
There has also been rationalisation in the jurisdiction of the inspectors
whose charges are now more concentrated. In course of time, with the
large-scale additions in and modifications to signalling installations. Divi¬
sional Signal and Telecommunication Engineers have been posted on most
of the divisions and are assisted by one or more Assistant Signal and Tele¬
communication Engineers. We, therefore, consider that the inspections of
signalling gear should be intensified and the periodicity of testing of
signalling gear should be suitably modified.

377. Joint inspections of signals —According t'o the procedure in vogue,
the signal inspector, the loco inspector and the transportation inspector
of the section are required to inspect and check the visibility of signals
travelling over the footplate of a locomotive once a month jointly. From
the information available with us, a record of their inspection is sent to
the divisional office for follow-up action on the results of their joint ins¬
pection. No record of their observations is however available at the station
the signals of which were found having poor or impaired visibility during
such joint inspections. We suggest that a copy of the relevant inspection
notes may be sent to the station for the reference and facility of inspecting
officers visiting the station to enable them to see if the defects and defi¬
ciencies pointed out in the joint inspection have been rectified,

378. Inadequate telecommunication —During the course of our tours
on the Railways and in the evidence tendered before us complaints were
made in regard to the frequent interruption of communications on the
control lines affecting train operation seriously. Thefts of copper wire
and adverse weather conditions were the reasons given for such interrup¬
tion.

379. We had made a reference to the Railway Board asking them to
indicate the extent of interruption to control communications due to theft
of copper wire as also the action taken to offset' the factors responsible for
the low efficiency of control circuits. In, regard to the extent of interrup¬
tion to control communications due to copper wire thefts, we were advised
that some sections of the Northern, the North Eastern and the Eastern
Railways are the worst affected. On the Northern Railway alone, during
the three months from October to December, 1968, the control circuit
hours lost due to copper wire thefts exceeded ten thousand. The position
railwaywise is indicated in Annexure VI and makes dismal reading.

380. As to the action taken to combat the situation, t'he Railway Board
stated in reply that a system of radio-patching in conjunction with multi¬
channel VHP (very high frequency) and micro-wave system is being used
in order to improve the efficiency of the control lines and to overcome the
difficulties created by the interruption of control circuits. In addition, we
were given to understand that the Railways had decided to run and man
there own, line wires instead of depending on the Post and Telegraphs
Department.

381. We consider these steps to be in the right direction and hope
that these would produce the desired results. We also note with satisfaction
that Rs. 16 crores have been allocated for development of telecommunica¬
tion works on the Railways during the Fourth Five-Year Plan as compared
to Rs. 6.23 crores made available during the Third Five-Year Pain and
the three years from 1966-67 to 1968-69. We hope that soon the Railways
will be able to develop telecommunication facilities on their system com
mensurate with developments in other fields as we consider that the fullest
use of the assets which the Railways have developed in recent years and are
developing can be made only if adequate telecommunications are available.
Moreover, adequate telecommunication facilities are indispensable for
proper supervision and maintenance of two-way communication between
the management and the staff the importance of which we have already
stressed in Chapter II.

382. The financial angle in modern signalling —We have already, in the
opening portions of this chapter, referred to the role of signalling and the
inadequate attention that it has received thus far. When making out a case
for any project from a financial angle, it is difficult enough to make a con¬
vincing justification in particular cases, but when it comes to presenting a
general case it can well-nigh become impossible unless an integrated and
broad view of the matter is taken. Signalling improvements by themselves
would always appear unnecessary sophistry unless they are visualised as a
part of the scheme to enhance safety and operational efficiency. We have
already referred to the costs of accidents—direct and indirect—in the open
ing paragraphs of the Report and stated that a good part of these is not
capable of being reckoned. Nonetheless, to these costs, the Railway ad¬
ministration is subjected from time to time and these must be taken into
account when rendering financial justification for signalling and other
safety works. To that extent, the present day concept of financial viability
of investment needs to be modified particularly in respeitt of signalling
projects. In our view, it would be impossible to attain a high standard of
safety, efficiency and economy in working if those responsible for sanction¬
ing the introduction of improved signalling methods, through Ignorance or
otherwise, fail to realise the true potentialities of modem signalling and
continue to apply the conventional yardsticks of financial justifiability to
safety works.

Chapter IX

MOTIVE POWER

Steam Locomotive Sheds

383. Even though diesel and electric locomotives are being harnessed
in the service of the Railways in a big way, there are many thousands of
steam locomotives still in service and are likely to remain so for a long
time to come. In age, these assets are relatively older and therefore their
proper maintenance becomes all the more important to keep them at a
reasonable level of efficiency.

384. Examination and maintenance of steam locomotives —Every steam
locomotive is assigned to a running shed for maintenance purposes. The
roster of a steam locomotive must provide for an adequate interval in the
shed for examination and servicing of the locomotive. It is during such
stop-overs in the shed between the trips that ‘running repairs’ to a loco¬
motive are carried out. In addition, at regular intervals, each locomotive
is given a “standard maintenance schedule” and maintenance overhaul in
the shed to keep it in good fettle. It is only for major repairs and for
periodical overhaul that a locomotive is withdrawn from service and con¬
signed to the workshop.

385- Booking of repairs on locomotives —The maintenance of a loco¬
motive depends primarily on the care with which repairs needed by the
locomotive are booked by the driver on return from a trip and by the
examining fitter at the incoming inspection pit who is responsible for
checking and testing, each locomot ive on arrival in the shed along with the
incoming driver. The examining fitter must see not only that the repairs.
booked by the driver are correctly and properly indicated, but if any re¬
pairs are not booked by the driver, they are duly recorded. Unless the
tepairs required are booked carefully, correctly and completely, it is not
possible to ensure that the locomotive would leave the shed on its next trip
in perfect fettle. As a result of the impression we gathered during our visits
to some of the locomotive sheds, we would strongly recommend that the
examining fitters at the incoming pit are chosen carefully after testing them
in their proficiency and ability to read and write. Furthermore, booking of
repairs by the driver and the examining fitter must be spot-checked from
time to time by visiting mechanical engineers, inspectors and other super¬
visors. The visiting officers should take the opportunity of their visits to
educate the examining fitters in the accurate booking of repairs. The loco
foreman too should, in our opinion, be in a position to make spot-checks
at least twice or thrice a week.

38<i. Equipment at the incoming inspection pit —Apart from the care
which the examining fitter at the incoming inspection pit must take in book¬
ing the repairs, it is essential that proper facilities for checking the condi¬
tion of the locomotive and in particular its undergear are available at the
incoming inspection pit in every shed. Such facilities include proper light
ing, portable electric lamps and side lights in the inspection pit, proper
drainage of the inaction pit and it* »Dkeep and cleanliness, the required

tools, vacuum test disc etc. We received a number of complaints about in¬
adequate lighting and poor drainage in the various sheds. As against this,
in a few sheds it was refreshing to find clean and dry inspection pits with
adequate lighting. We suggest that whenever officers of the mechanical
department inspect the incoming inspection pits, they must in particular
check up deficiencies in respect erf lighting, drainage, cleanliness, availability
of tools etc. The action required to be taken on the observations made
by them must be followed up.

387. Execution of repairs —The repairs to an incoming engine having
been recorded, it is equally essential that they are carried out thoroughly.
The carrying out of repairs properly depends on the availability of proper
stores, parts, tools and equipment and .also the workmanship of the main¬
tenance staff and the time available for maintenance. We have already
stressed the need for proper training of maintenance staff like artisans etc.,
in an earlier chapter. As for stores, parts and tools, we deal with the
question of their shortage and inferior quality elsewhere in this Report.
Here, we would like to stress the importance of test checks on the quality
of repairs carried out. At present, the fitter in charge in a loco shed,
who is also known as the senior chargeman or the loco fitting inspector
on some Railways, carries out sample checks on the work done by staff.
Considering the way in which bookings are repeated in successive trips,
it is obvious that the check on the work done by the repairing staff leaves
much to be desired. The National Federation of Indian Railwaymen
had, in a memorandum submitted to us, stated that the time allowed
for maintenance of engines in the loco sheds is inadequate and that
drivers are often forced to work the trains with ill-maintained locomotives.
Even though in their evidence, the drivers did not make a complaint of
this nature, we have little doubt that the check on the working of the
repairing staff in a shed is not altogether thorough. In Part I of our
Report, we had pointed out that during the five years 1963-64 to 1967-68.
a substantial number of engine failures—38 per cent on the broad gauge
and 43 per cent on the metre gauge—were found to be due to bad work¬
manship in the loco sheds. The fact of this poor workmanship finds fur¬
ther support from the incidence of repeated bookings to which we wodld
refer in subsequent paragraphs. We find that generally a driver examines
the engine at the outgoing inspection pit before taking it out of the shed.
Whenever he notices any deficiencies be merely points this out to the
fitting staff who rectify them there and then with the result that no
record of such defects is kept. We would recommend that test-checks at
the outgoing inspection pit should be intensified. A general toning up
of supervision and inspection would in our view go a long'" way in
improving the standard of repairs and maintenance.

388. "Repeated Bookings’ register —A repeated bookings- register is
maintained in each shed. This is posted from the repairs which are re¬
peatedly booked by the drivers and the examining fitter at the incoming
inspection pit. The entries of repeated bookings in the register are meant
to highlight weak points in the design of components in different types of
locomotives and the quality of material used so that effective measures
could be taken to effect improvement. The register also affords an indica¬
tion of the standard of workmanship and shows where and in which
direction improvement is required. For this purpose, repairs booked re
peatedlv are required to be .carefully analysed, then causes diagnosed and
remedial measures taken as necessary,

100

389. The Kunzru Committee had recommended that the repeated
hookings register should be maintained on a uniform basis. The Railway
Board had advised us that although they had not issued any standardised
form in which the repeated bookings register should be maintained by
all the Railways, they had issued instructions indicating broadly the
manner in which the repeated bookings register was to be maintained and
the manner in which the follow-up action was to be taken. Based on these
instructions each Railway had, according to the Railway Board, standar¬
dised the form in which a record of repeated bookings was being main
tained. We have our doubts whether the understanding of repeated book¬
ings is uniform oa. all the Railways. For instance, the Eastern Railway
has indicated that ‘a booking is considered repeated only when the re¬
pair is booked for three consecutive times at the home station’. The
Northern Railway considers that ‘any booking of repairs of items speci¬
fied in the repeated bookings form for three times or more between sche
dules in which they are normally attended to will form items of repeated
booking’. In addition, the Northern Railway has also included ‘protec¬
tive bookings’ in the figures of repeated bookings. We consider it' im¬
portant that there should be no disparity in the concept of repeated
bookings on the different 1 Railways. The definition of repeated bookings
should be standardised. It would also, in our view, be useful if the form
of the repeated bookings register is standardised for use on all the Rail¬
ways instead of each Railway following its own system.

390. We had asked the Railways to furnish information about re¬
pairs booked repeatedly in respect of certain components of steam loco¬
motives for the months January to March, 1969, along with an analysis
of such bookings under certain broad causes. For the purpose of this
study, we selected twelve such components as find mention in the re¬
peated bookings registers of most of the Railways. The Southern, the
South Central, the South Eastern, the Eastern and the Northern Railways
furnished this information. The other Railways did not furnish the re¬
quired information. The study, «;ven though it pertains to only a few
Railways and a limited period, is fairly representative and highlights a
high incidence of repeated bookings in respect of repairs to certain com¬
ponents as for example piston glands blowing, defective injectors, coupled
boxes knocking or hot, lirtle-end knocking or hot, big-end knocking or
hot, regulator glands blowing, vacuum brake defective, defective lubrica¬
tor, etc. In the information as furnished by the Railways, poor workman¬
ship in sheds and shortage or inferior quality of material were shown as
the chief causes of repeated bookings. Mismanagement on the part of the
engine crew was also responsible to some extent for giving rise to repeated
bookings.

391. The defects in a locomotive, apart, in some cases, from being a
hazard to safety, distract the driver and disturb the unceasing vigilance
which he is called upon to exercise on the state of the track ahead. A
case of a repeated booking is, in the first place, a reflection of poor work¬
manship. But more than that, it can be frustrating and upsetting for a
driver who may have taken care to book the repair but who on his subse¬
quent trip finds that the defect has not been attended to or has been
attended to improperly. It is true that a locomotive has several thousand
different parts. Even so, the limited survey which we have made in respect
of repeated bookings shows that there is slackness in the sheds in attend¬
ing to' booked repairs and that there is considerable scope for improve
ment.

101

392. We were told during the course of evidence that on the old
M.S.M. Railway, a book codifying repairs to a locomotive and highlight¬
ing repeated bookings was submitted every month to the Chief Mechani¬
cal Engineer personally who would go through the book and deal with
repeated defects. This, we were told, contributed greatly to a high stand
ard of maintenance of locomotives on that Railway, We consider that it
would be a salutary step if data in regard to repairs booked repeatedly
in respect of certain selected components of a locomotive are sent by
the Divisional Mechanical Engineer periodically for the attention of the
Chief Mechanical Engineer himself. We have no doubt that such a step
would result in greater care being bestowed on the maintenance of loco¬
motives.

393. Defects resulting in unsafe conditions —We had, in Part I of our
Report, analysed the causes of derailments during the five years from
1963-64 to 1967-68 and had shown that 4 per cent of the derailments on
the broad gauge and 9 per cent on the metre gauge were attributable to
locomotive defects. The two main defects responsible for derailments, as
shown in the analysis, were defective wheels or tyres and broken axles
or journals. We deal with these defects in the paragraphs which follow.

394. Defective wheels or tyres —During the standard schedules of main¬
tenance, namely, schedules II, III and IV, and the maintenance overhaul,
the wheels and tyres of a locomotive are checked and the exact wear is
recorded in a register. The intention of checking and recording the wear
is to make an accurate assessment whether the tyre would not reach the
condemning size while in operation until the next check becomes due.
The fact that derailments take place due to defective wheels and tyres
lends some weight to the assumption that checking and recording of the
wear on the tyres is not always done with due care. We would emphasise
that greater attention should be paid to the gauging of wheels and tyre
profiles.

395. The tyre profiles are machined in loco sheds to prolong their
life. For this purpose, every major shed is required to be equipped with
a wheel lathe. The North Eastern Railway stated in reply to our ques¬
tionnaire that not all the major loco sheds on its system have been
equipped with these lathes. On the Northeast Frontier Railway also, it
came out in evidence that wheels had to be sent to the Dibrugarh work
shop resulting in considerable delays. Even while spare wheel sets are
normally available in the wheel park for replacement of worn wheels, we
suggest that the requirements of loco sheds for provision of wheel lathes
should be speedily assessed and such wheel lathes should be provided
wherever justified without any loss of time.

396. Broken axles or journals —It will be recalled that out of 318 de¬
railments caused by engine defects during the five years 1963-64 to 1967-68,
31 w.ere due to broken axles. The importance of proper and thorough
examination of axles and journals therefore needs no emphasis. In ac
cordance with the maintenance schedules, axles or journals are to be
examined during schedule IV. This schedule, depending on the type of
locomotive, falls due after an engine has travelled 17,000 or 20,000 or
30,000 miles. Since schedule IV does not fall due except at fairly long
intervals, it is essential that axles or journals are tested scientifically during
this schedule so that defects if any—whether on the surface or deep-rooted—
are detected. This is possible only if the axles are tested by ultrasonic

102

testing equipment. The bulk of evidence tendered before us showed that
loco sheds in most cases do not have ultrasonic equipment and they make
do with chalk testing which is an inadequate and unreliable method
Often, an ultrasonic testing unit is shared between the workshop and the
sheds. We do not consider this practice to be efficacious. In our view, it
is likely to lead to a diffusion of responsibility and to render the examina¬
tion ineffective both in the sheds and in the workshops. In our view, ultra¬
sonic testing equipment is an essential requirement of each major loco¬
motive shed. It is also necessary that the intervals at which the axles and
journals of locomotives should be ultrasonically tested in the loco shed
should be laid down. We have been advised that action is being taken by
the Railway Board to procure additional ultrasonic equipment.

397. Handling of locomotives by drivers —We have already mentioned
that the repairs repeatedly booked were on analysis found partly due to
mismanagement of the locomotive by the engine crew. It will also be re¬
called that in Part I of our Report, we had shown that 29 and 26 per
cent of the engine failures on the broad and metre gauges respectively
during the years 1963-64 to 1967-68 were due to mismanagement of the
engine crew. We consider it essential that the training of drivers in the
handling of steam locomotives should continue to be pursued with vigour
so that steam drivers remain fully accomplished in their basic profession.

398. Standard schedules of maintenance —It is important that each
locomotive gets its standard schedule of maintenance thoroughly when
it becomes due. On the Northeast Frontier Railway, we found that the
programme of schedule repairs was generally getting into arrears. This
was attributed partly to the lack of facilities in the loco sheds and partly
due to shortage of stores and hand tools. As for shortage of stores and
hand tools, we deal with the matter elsewhere. Here we would like to say
that we attach great importance to the provision of adequate facilities
and equipment like deep drop pits, hoisting arrangements, lighting, ma
chines for repairing or reconditioning of various components, different
types of testing equipment, etc., in each loco shed. We would suggest that
a detailed survey of the facilities, equipment and machines, etc., available
in and required for each loco shed on a Railway should be made by a
senior mechanical engineer of the Railway and effective action should
be taken thereafter to make good the deficiencies.

399. It is equally important that the schedule repairs to a locomotive,
once taken in hand, should be carried out within the prescribed time’
Here too, we found that the Northeast Frontier Railway was getting into
arrears. We are advised that on the Northern Railway, each shed main¬
tains a graph showing the dates on which an engine is due to undergo
each of the various schedules, period prescribed for completing the sche¬
dule, the date on which a locomotive is taken in hand for schedule re
pairs and the time actually taken in completing them. This graph indi
cates at a glance the performance of the loco sheds in respect of the
maintenance schedules. Singe the system has yielded satisfactory results
in keeping a watch on the position of schedule repairs to locomotives,
we suggest that its adoption on other Railways be considered with such
modifications as local conditions may require.

400. Running performance of a locomotive— The proof of proper
attention having been conferred on a locomotive would lie in its perfor¬
mance on the run. At present, apart from what a driver taking out a

103

locomotive on a journey may observe in regard to its condition, the other
checks are only of an ad hoc character, being exercised by officers and
inspectors while travelling on footplate. While such checks have their
utility inasmuch as they enable sampling of the quality of work done in
the sheds, they do not cover all the engines systematically. We understand
that to overcome this, on some of the Railways like the Central, the
Western and the Northern, the various locomotives are assigned to
inspectors of the mechanical department individually. An inspector to
whom a locomotive is assigned is required to examine it periodically,
generally once a month, and to report to the home shed and the Divi
sional Mechanical Engineer on the condition of its maintenance. He must
also ensure that the defects noticed in the locomotive are rectified by the
maintenance staff. On the Northern Railway, the appraisal by the ins
pector of the maintenance of the locomotive which may be rated as ‘good’,
‘fair’ or ‘bad’ is shown on a chart maintained in the loco shed. This
system, so to say, is an adaptation of the ‘one engine—one crew’ system
which was in force on the Railways before the pooling or partner-pooling
of locomotives started and may be described as "one inspector—a specified
number of engines" system. We are disposed to think that such a system,
ensuring as it would personalised attention to the locomotives by a nomi¬
nated inspector would be conducive to better maintenance. Where the
condition of a locomotive on inspection by an officer is found to be poor,
the inspector to whom it is assigned would be similarly accountable. Wc
suggest that the Railways on which such a system does not exist should
examine the merits of this svstem and adopt it if they consider it ad¬
vantageous.

Steam Locomotive Workshops

401. Capacity for periodical overhaul —With the increasing introduc¬
tion of diesel and electric traction, the workload in regard to periodical
overhaul of steam locomotives in most of the locomotive workshops is
being reduced. During the course of our visits to the workshops, we found
that most of them had adequate capacity for overhauling of locomotives.
The only case where capacity was reported to be falling short of require¬
ments was at the Lalaguda workshop where wc were told that the capa¬
city was limited to 7 broad gauge locomotives against the requirement of
18. We were informed that the Southern and the Central Railways were
assisting the South Central Railway in the matter of periodical overhaul
of steam locomotives. We have no doubt that the South Central Railway
has already made an assessment of its requirements of overhaul of steam
locomotives and in case the requirement is going to outstrip the capacity,
to develop it suitably.

402. Machines and equipments —In several workshops which we
visited, there were complaints that the machines installed were overaged
or obsolete. One Works Manager told Us in his evidence that 50 to 60 per
cent of the machines in the workshop were overaged and this in turn
affected the outturn both qualitatively and quantitatively. In another
workshop too, we were told that a number of machines were absolete
and could not function like new machines even after reconditioning. This
it was stated, resulted in loss of speed in production as also of precision.
While we are aware that the machinery' and plant programme is made
out every year for replacements and additions, we consider it necessary to
emphasise that replacements of worn out machines should be effected as
expeditiously as possible.

104

403. Testing of springs —We found during our visits to the workshops
that generally springs of locomotives were subjected to load deflection as
well as scrag testing to the extent of 100 per cent and that most of the
workshops were adequately equipped for the purpose. At the Lalaguda
workshop, however, it came out in evidence that scrag testing of springs
was being done on load deflection testing machines which is not a scientific
method.

404. In Part I of our Report, it has been brought out that about 9
per cent of engine derailments were due to defective or broken springs
or suspension. The incidence of such derailments can be brought down
only if springs are subjected to proper heat treatment, scrag and load
deflection tests. Where workshops are not adequately equipped with modern
scrag and load deflection testing machines, they should be so equipped
without further loss of time.

405. Balancing the weight of engines —For safe and efficient running
of a locomotive, proper distribution of weight on the various wheels must
be ensured. We found during the course of our visits to workshop that
some of them did not have weighbridges for weighing and adjusting the
load if required. The weighbridge in the locomotive workshops at
Lucknow was not only unsuitable for certain heavier type of engines but
had been out of order for a long time. Most of the Deputy Chief Mechani¬
cal Engineers emphasised that every workshop must have a weighbridge
for proper distribution of weight on all the wheels. We strongly urge that
all locomotive workshops should be equipped with proper weighbridges.

406. Ultrasonic testing equipment —We have already referred to the
need for proper examination of axles. The evidence tendered before us
highlighted the inadequacy of ultrasonic testing equipment in the work¬
shop. The Chief Mechanical Engineer of a Railway and some other senior
officers of the mechanical department stated before us that the ultrasonic
flaw detectors on their Railway were not adequate to test the axles of all
locomotives. Some of the workshops which did have the equipment had
to share it intermittently with the locomotive running sheds.,We would
urge strongly that adequate provision should be made in each of the work¬
shops for ultrasonic equipment for the testing of axles. In fact the provi¬
sion should be such that not only the axles of locomotives but also coaches
and wagons can be subjected to ultrasonic testing to a specified extent.

407. Quality control —There was considerable evidence to show that
the emphasis in the workshops is at present primarily on the quantitative
outturn to the detriment of the quality of the job done. A General
Manager stated during his evidence that a lot of bad quality work was
being done in the workshops because everyone was concerned with the
outturn rather than the quality of work done. A retired Additional Mem¬
ber of the Railway Board stated that the efficiency of the officers in charge
of the workshops was judged by the quantum rather than by the quality
of outturn. Some technical supervisors in a memorandum submitted to
us also complained that quality control in the workshops was not suffi¬
ciently effective.

408. It was suggested to us that the inspection organisation in the
workshop should not be subordinate to the authority answerable for
the outturn. In this we were assured by the Deputy Chief Mechanical
Engineers and the Works Managers of the different workshops that the
inspection organisation was effective and that this wing was headed by

105

a Production Engineer who was independent Of the Works Manager res¬
ponsible for repairs'ind-output. * It may, however, be mentioned that a
Production-Engineer is‘finder the Deputy Chief Mechanical Engineer who
is in overall charge oif the 'Workshop.' Quality control is not merely a re-
fihement biit something vital ior safety itt train operation. Not' only must
the "inspection orgaiilVation hr a workshop not be subordinate to the
persdir charged with," the responsibility of the outturn but it taust be cap^
able of making a thorough inspection at every stage of the work. For an
evaluation of' thre functioning of Quality control, we must look at the
analysis ‘ofTailtires Of the various pirts of a locomotive due to poor work¬
manship in the workshops, We had pointed out in Part I of our Report
that'abotft 9 per cent of the total number of engine failures on the broad
gauge and about 10 per t^nt on the mkre gauge during l!he five years
1963-64 to 1967-68 were ascHbable to poof workmanship in the workshops.
Wie suggest that a periodic evaluation Of. the rfficacy of quality control m
the workshops sfitmld be done 1 at the Chief Mechanical Engineers' level.
We also emphasise the need fbr tnbfe detailed information being regularly
supplied to the workshops concerned in respect of failures of locdm&tives
arising from poor workmanship so that they fian adopt proper remedial
measles

409. Headlights and dimmer switches —Often during the course of
evidence, 'a chronic shortage of headlight bulbs was points out to us. We
wede told that bulbs got burnt Out, the reflectors were of bad quality and
the headlights often failed or got dim. We were also told about the diffi¬
culties in the maintenance of dimmer switches due to pilferage of copper
parts.. We consider that with a careful pipdy of th,e presppt defect* apd a
fewVminor improvements in the designs,, of the reflectors and dimmer
switches it should to possible to ensure tjiat locomotives go out with pro¬
per headlights and dimmer switches in working ,order.

Diesel and electric locomotive sheds

410. The standards of maintenance of diesel and electric locomotives
are entirely different from those for the maintenance of steam locomotives.
These traction assets are far costlier and if maintained in good fettle, can
prove far more efficient. The necessity for excellence in servicing, main¬
tenance and repairs of such locomotives therefore needs no emphasis. At
the same time, it is essential that the equipment and the facilities for
maintenance as also the maintenance practices for such locomotives should
be standardised and pie standards so prescribed complied with.

411. Diesel locomotives-—We had enquired from the Railway Board’s
office if the machinery and plant to be provided in diesel and electric loco¬
motive sheds had been standardised, and if so, to what extent the stan¬
dardised equipment had been provided in the sheds. We find from the
information furnished by some of the Railways through the Railway Board
thM'the understanding of the various Railways in regard to the standar¬
disation of machinery and plant to be provided in a diesel locomotive
shed is not uniform. For instance, one Railway has stated that standardised
equipment has hoe'been prescribed for sheds homing less than 100 loco¬
motives. Someother Rallwayshave^ stated that'machinery and plant have
not been ‘Standardised beyond the fact -th4r the Research Designs and
Standards Organisation have mentioned certain 1 item^ of equipment. -One
Railway went to rite extent Of saying that the programme of complete
acquisition■«{ equipmentidanttdt ibe fulfilled -unless if is standardised.

412. The Railways have, however, stated in reply to our questionnaire
that by and large there is no difficulty in procuring the equipment required
which is indigenously manufactured. Even so, some have referred to non¬
provision of certain equipment which the diesel sheds are in need of at
present. The Central Railway stated that the Itarsi shed which was origi¬
nally planned for homing 40 locomotives has to hold 60 at present which
creates problems. The Eastern Railway have stated that there is need for
modem machines both imported and indigenous and a considerable num¬
ber of components have to be imported, bpt the inadequacy of foreign
exchange restricts the scope for development. The South Central Railway
informed us that they do not have any diesel locomotive running shed
on their system and this poses problems. We would urge the Railway
Board to standardise the equipment and the facilities required for the
diesel loco sheds where they nave not so far been standardised so that the
Railways can thereafter take steps to equip the sheds to the required
standard and the facilities available in diesel sheds cap compare favour¬
ably with those available for maintaining similar assets in other advanced
countries.

413. We might mention here that an indication of the standard of
maintenance is given by die fact that as against target of 200,000 kilo¬
metres per diesel engine failure as laid down at present, the actual per¬
formance on one Railway is of the order of 70 to 80 thousand kilometres.
This is a clear pointer to the need for improving maintenance of diesel
locomotives.

414. Electric locomotives—The picture in regard to the maintenance
of electric locomotives as depicted in the figures of electric locomotives
failure is more or less the same. During the years 1966-67 to 1968-69, the
figures of failures in relation to kilometrage per engine failure on the
broad gauge were as follows: —

1606-67 1807-68 1»68-6ST

< - •* -.-, i-- -*■-- —i t— -

Gauge

Railway

Number

failures

Engine

Kms/
engine
failures

Number

1 of
failures

Engine
Kms /
engine
failures

Number

failures

Engine

Kins/

engine

failure

Broad

Central

05,806

700

7,744

637

10,816

Gauge

Eastern

IS 5

1,40,986

249

81,808

283

72,473

Northern

66,762

1S2

S1.974

170

38,010

South

Eastern

82.602

1,08,865

184

70,330

415. It will be seen that the performance of electric locomotives falls
well below the target of 200,000 kilometres per engine failure laid' down
by the Railway Board. One of the Chief Electrical Engineers stated that
fire was the biggest single cause of failures .and that this was due to the
equipment not being kept clean. Another Chief Electrical Engineer ascrib¬
ed the failures to delects in the main circuit breakers, failure of insulation
of relays and contactors sticking due to dust. Great stress was laid on
well trained staff, adequately equipped loco sheds and availability of spare
parts and stores for the proper maintenance of electric locomotives. It is
in this context that we take note of the fact that electric loco sheds have
not yet been provided with all the machinery and plant which they should

107

normally be equipped with. We have scrutinised statements of machinery
and plant provided at the electric loco sheds at Tatanagar, Asansol and
Kalyan which the Railway Board sent to us and we find that these sheds
are deficient in respect of several important items of machines and equip¬
ment. The sheds at Bhusaval and Mughalsarai too have not yet been fully
equipped. We point, this out only to emphasise the need for ensuring that
the electric loco sheds are equipped witn all the necessary machines and
plant from the beginning if maintenance of a high standard is to be
attained.

416. A committee of senior officers has, we understand, been appoint¬
ed to go into the question of standardising the machinery and plant to be
provided in electric loco sheds. We consider it a step in the right direction
and hope that the committee would accomplish its task so on and that its
recommendations will be implemented early. We have been advised that
once the machinery and plant are approved as a standard equipment for
the loco sheds, no difficulty is anticipated in procuring the machinery and
plant indigenously manufactured. For the difficulties encountered in
obtaining imported machinery and plant, a solution would have to be
found,

417. Speedometers and speed recording apparatus —We had recom¬
mended in Part I of our Report that all locomotives working trains should
be equipped with speedometers on a phased programme and a target should
be laid down in regard to the provision of this aid on all locomotives. The
Railway Board while accepting this recommendation stated that all diesel
and electric main line locomotives had already been fitted with speedo-
metres. They added that all steam locomotives working passenger trains and
some working goods trains had also been fitted with speedometers and that
the remaining steam locomotives (except those employed on shunting)
would be fitted with speedometers on a phased programme.

418. During the course of our tours, it' came out in the evidence of a
number of officers including some Chief Electrical Engineers, Chief Mecha¬
nical Engineers and a General Manager that the VDO type speedometer
was meant primarily for road vehicles and was not suitable for locomotives.
It was stated that the speedometer was sluggish and did not show accurate
speed when decelerating specially in the lower speed range, the indication
being higher than the actual speed of the locomotive. The VDO speedo¬
meter moreover functioned when the locomotive worked in one direction.
This naturally precluded the use of the speedometer on diesel locomotives.
We were told that unless a special device was installed between the gear
box and the speedometer which would work the spindle in the instru
ment in the indicating direction when the locomotive was being driven
one way or the other, this difficulty could not be overcome. A Chief Electri¬
cal Engineer, in a ndte submitted to us, pointed out that the graph
recorded by the VDO type speedometer was a 24-hour graph on circular
paper of a small size indicating speed and time and was therefore of limit¬
ed use in checking the observance of speed restrictions by drivers. We were
also told that the flexible shaft and the gear box often gave trouble. Even
though the RDSO have suggested various measures to overcome the defects,
it was, we were advised, doubtful whether these speedometers would give
satisfactory service even with the modification in the gear box and the
flexible shaft. It was generally contended that the indigenous development
of a Hashr type instrument may provide a solution.

108 '

419. We understand that , same of the locomotives are at. present fitted
with the Hasler speedometer-cum-recorder which incorporates the feature
of direction corrector. The speed is recorded to a linear scale and the paper
roll lasts for 7 days. The speed-time-distance graph indicates the speed at
every point on the route. The instrument: is reliable and has stood the test
of satisfactory service over many years,

420. In our discussions with the Railway Board, we were given, to
understand that the firm manufacturing the VDO type speedometers were
themselves interested in the manufacture of Hasler type instrument in col¬
laboration with a German firm. It was hoped that the terms and conditions
of collaboration would be .finalised soon and a^more suitable typp of speedo¬
meter would be available. We would urge that energetic steps may be taken
to see that a more suitable .and reliable type of speedometer-cum-speed re¬
corder may be manufactured indigenously for use on locomotives.

421. We also observed durifig our tours that a number of diesel loco¬
motives on the metre gauge were fitted with speedortteter-cum-recorder be
low the sill of the look-out panel at the shorthood end. In such, a
position, the driver has to turn back in an inconvenient position to look
at the speedometer when the locomotive is being driven with the longhood
leading. In our discussions with the Railway Board, we were given to
understand that they were already seized of the problem and were thinking
of providing another speedometer for the driver for use when the engine
runs with the long-hood leading. We would suggest that either Usd speedo¬
meter should be repositioned on the control desk or alternatively another
speedometer may be provided so that the driver can refer to it conveniently.

422. We were also told that in regard to the difficulty that the present
speedometer could function only in one direction, the Western Railway
had tried out a 'direction corrector’ with the VDG type speedometer with
successful results. So long as :the VI>0 type speedometers are in use on diesel
locomotives, it is suggested that a direction corrector should be fitted.

423. We had already mentioned in Part I of our Report that a sub¬
stantial percentage of VDO type speedometers were being received by the
locomotive workshop at Lucknow for repairs even before a period of 6
months had elapsed. On another Railway, a Chief Electrical Engineer, in
a note submitted to us, stated that thecincidence of ineffective speedometers
was about 70 per cent. We were told thatta reserve of 20 per cent speedo¬
meters was provided in the sheds so that the defective speedometers could
be replaced and sent to the workshops for repairs. We consider that until
facilities and the necessary expertise can be built up in locomotive sheds
to handle defecUve speedometers efficiently, it would be a wise policy to
replace the ineffective speedometers from'reserve stock and send the in¬
effective units to the workshops for repairs; Simultaneously a detailed tech¬
nical survey of the defective speedometers and the intervals at which the
components require attention ; in the- workshops should be made and on
the basis of this survey remedial,measures evolved so that a target for ser
vicing of speedometers, not ofteher than once a<year can be achieved.

424. Drivers’ Vigilance device--- Conditions. df work in the driving cab
of a diesel or electric locOmotive are vqry different from those in the cab
of a steam locomotive, The comfortable seat, the dim light.in the cab, the
dull purr and the whirring of a locomotive,-the staccato elidt of the ra$
and the monotony of'long, run: in-an enclosed cab, all combine to create

109

dfawwnws in the driver. This therefore raises the question of the need for
S-cbnittant check on the alertness of'the driver in the interest of safety in
train rumiittg.

-12i>. The simplest device to safeguard against . a locomotive running
away in the. event of the driver falling fftskep or getting incapacitated »
the deadman^s handle ov, pedal. This consist* of a foot-pedal or a push
button ybich must be kept continuously pressed by the driver. In case the
pressure on the pedal or the push,button is released, the locomotive power
gets cut off and the brakes apply automatically. The device, though ade¬
quate- it* normal conditions, is not fool-proof. There have been instances
When a driver fell asleep or fainted in a position that pressure continued
to be Applied 1 oyer ‘the device thus defeating the purpose of its provision.
Moreover, die equipment is susceptible of interference by a driver who may
be inclined to avoid the physical strain; of keeping the deadman’s handle
or pedal stressed and may choose to jam it or keep it under pressure arti¬
ficially.

426. Need is therefore felt for a more effective and fool-proof device.
In such a device a driver must make a movement at (regular: predetermined
intervals. (Should he fail to make, the required movement after the specified
interval, an alarm is sounded in the cab; if even then no response is made
by; the driver the power of, the locomotive- is shut off and the brakes apply
automatically. The provision of such a device,which is known as ‘Driver’s
Vigilance Device' has been accepted as a standard equipment by the kail¬
way Board for all diesel arid 'electric locomotives.

427. Hn reply to a questionnaire sent by us the RDSO stated that
ffhferent types df vigilance devices used in (foreign countries had been tried
for obtaining service experience. Thrf <fiff£rCrtt systems tried out were
WABCQ, Smith Stone and Qeriikon. None of these systems, according to
the RDSO,, jvas found entirely satisfactory and reliable under the operating
conditions of Indian Railways. It was therefore decided to develop a more
suitable indigenous device.

488.'Some time .■ago, a mechanical dnginefcr on the Indian Railways
developed a drivers vigilance device Which functions- on a time cycle basis.
In-..this device-there is a foot pedal which the driver must hold in mid-
position normally and at specified intervals' either depress or release the
foot'pedal.-Unless, hei does so, he receives an audio-visual warning and if
this too i* [ignored an: automatic cutting off of power and application of
brakes takes place. Each time the driver fails to respond to the warning, his
failure? get? recorded. Another inbuilt feature in the device i$ a push but¬
ton swjmh which isolates,the equipment far, the-duration of a single vigi-
lance-uine cycle so that the driver may bfi able tp go to the other side of
the can look- tor the signals if necessary.

429. r ,We,, had the . opportunity tp sec the tests being carried out on
th'is device (which has been named as ’Driver’s safety control') during our
visit to the Lalaguda workshop. Later, we also saw a unit fitted on a WDM
locomotive at Bhusaval. It' was reported to be functioning satisfactorily.
The device, we were advised, had been evolved in two designs—electro¬
mechanical arid electro-pnettmat-jC. We Were told that the Railway Board
Wd placed an order for 29' deetreMhechahipl apd an equal number of
eleetroqmelunatic jjnits with ^ jCalcutta firm for Trials on broad gauge
diesel locomotives,

430. It is indeed gratifying to note that engineers of the Indian Rail¬
ways have shown such remarkable enterprise in designing devices of a re¬
fined type. We hope that the results of trials under operating conditions
would be assessed early and improvements as required carried out. We
would on our part suggest that within the shortest possible time, all diesel
and electric traction units should be equipped with a driver’s vigilance
device. All new motive power units manufactured at Diesel Locomotive
Works and Chittaranjan Locomotive Works should be fitted with this de¬
vice before being sent out to the Railways.

431. Any reservations that we might have had in our minds in regard
to the reaction of drivers to such a device were dispelled in our discussions
with Col. D. McMullen who told us that the drivers on the British Rail¬
ways were raking to the device perfectly well. He added that before instal¬
lation of the device, the proposition had been put to the unions and dis¬
cussed with them and that tney had accepted the use of the device with
a time cycle of about one minute. We would suggest that while the process
of installation of the device is continuing, the administration should take
steps to cany the staff with them. In our discussions with the Railway Board
we were given to understand that a programme for acquainting drivers with
the usefulness of this device and for making them realise its utility in the
safety of train operation would be drawn up and followed. The Railway
Board are hopeful that drivers would understand the value of this device.
We too would like to express similar hopes.

432. Anti-wheel slip device —Under unfavourable conditions, both at
the time of starting ana during the run, the wheels of the driving axles
rotate and spin without corresponding motion of the locomotive. This is
known as wheel slip. Wheel slips can cause rail burns. The driver’s first
anxiety while starting a train is to avoid slipping of the wheels,

433. A common device used to guard against wheel slipping is the sand¬
ing gear, but this arrangement is effective only if dry and clean sand is
available and the sanding gear is kept in working order.

434. Diesel locomotives are more prone to wheel slipping than steam
or electric locomotives. On diesel locomotives, slipping of wheels ordinarily
occurs when traction motors are working in series combination. Both in the
ALCO and the General Motors diesel locomotives, anti wheel-slip devices
are provided. On the diesel locomotives manufactured by the General
Motors, a warning light in the cab indicates the occurrence of a wheel-slip.
In ALCO locomotives, the indication is given by a warning light and a
buzzer.

435. The Chief Design Engineer of the Diesel Locomotive Works,
Varanasi, in a note submitted to us, stated that in the control system of the
diesel locomotive, means are provided to detect and automatically arrest a
wheel-slip svithin a short time. The system makes use of the characteristics
of the series traction motors to operate the wheel-slip relays in various types
of circuits. The wheel-slip is thus automatically corrected and the power
is reapplied when the slipping has stopped.

436. We would recommend that the anti-slip devices be provided on
diesel and electric locomotives should be frequently checked for their effi¬
cient functioning. We would al$o suggest that both the indications, i.e.,
visual as well as audible, should be provided on diesel locomotives to give
an indication of wheel-slip. Provision of such devices would, in our view,
lead to a substantial reduction, in the incidence of rail-bums.

Chapter X

GOODS AND COACHING STOCK

437. The Railways operate a large fleet of goods wagons and coaching
vehicles. The examination and maintenance of this largest single item of
mobile equipment, namely, wagons and coaches has an important bearing
upon the standard of safety in railway operation. In Part I of our Report,
we had observed that of tne total number of derailments during the five
years 1963-64 to 1967-68,'21.6 per cent on the broad gauge and 22.3 per cent
on the metre gauge were due to carriage and wagon defects. Inj fact, the
incidence of derailments attributable to carriage and wagon defects was
the second highest, i.e., next to that due to staff failures. Moreover, of all
the derailments due to carriage and wagon defects, 30 per cent on the
broad gauge and 52 per cent on the metre, gauge were mid-section derail¬
ments which are potentially more serious. In consequence, the examination
and maintenance of wagons and carriages is a matter deserving the closest
consideration:

438. Examination of goods wagons —We had in Part I of our Report,
stressed the need for the adoption of a uniform basis for fixing the time
schedule for train examination and for determining the strength of examin¬
ing gangs essential for proper examination and repairs of trains. Some of
the mechanical engineers who tendered evidence before us stated that the
entire question of train examination should be reviewed and work study
should be undertaken to assess the adequacy of time allowed for examina¬
tion of goods trains vis-a-vis the strengths of the examining gangs on the
various Railways. The evidence, thus, supported what we had already said
in Part I of our Report. The Railway Board have stated in their comments
on our suggestion that a uniform time schedule for different types of train
examination is being laid down on the basis of which gang strengths in
different yards would be determined by the Railways taking into account
the number of trains dealt with in these yards. We welcome this decision
and hope that its early implementation will remove the complaints voiced
by officers and staff about inadequate time allowance for examination, in¬
sufficient gang strengths, skipping of repairs, etc.

439. In the course of our tour on the Eastern Railway, we jjot an
opportunity of observing and discussing the system of train examination
introduced at Andal. Under this system, the examination of incoming
wagons on the reception lines has been intensified and rationalised. Materials
in adequate quantities are made available at the site of examination for
doing the repairs and the gang strength of each batch attending to different
parts of wagons has been fixed after carrying out a work study. The res¬
ponsibility for the proper examination and repairs of a particular ‘gear’ of
a wagon is entrusted to specific groups of carnage and wagon staff who can
be distinguished by their badges so that responsibility can be directly fixed
on the specific group should a case of skipping of repairs or poor workman¬
ship be noticed. The various specific groups are earmarked variously for
undergear, box feeling, oiling and nursing, buffer and draw gear, springs,
axle guard and axle box, and vacuum brake assembly. Portable electric

in :

112

torch lights worn on the forehead have been provided for proper examina¬
tion. We were told that this system had resulted in considerable improve¬
ment in the condition of goods stock in addition to saving detention to out¬
going trains. We were also told that the Andal pattern of train examina¬
tion has since been introduced in some other yards on the Eastern as well
as other Railways. If the system has proved efficient, economical and use¬
ful, we see no reason why it should not be extended to other important
train examining centres. We suggest that difficultifes, if $ny, in its adoption
at other places should be overcome.

440. We received several complaints from the train examining staff
at various stations and yards on the zonal Railways that the transportation
staff often aiked for the examination of a load in less than the prescribed
time. It was contended that, at rimes, only one hour was allowed for in¬
tensive examination of a train instead of two hours fifteen minutes as pres¬
cribed in> the Conference Rules. A Chief Mechanical Engineer pointed out
that though the provision in the Conference Rules permitting curtailment
of time for train examination- was intended to be an exception to be res¬
orted to on rar£ occasions, its use has become a general practice. We con¬
sider that the maintenance of goods rolling stock merits no less importance
than yard operation and the occasions on which recourse should be had to
the provision for curtailment of time for train examination in exceptional
cases should be few and far between.

441. There are different types of train examination to which goods
stock is subjected according to requirements. These are termed ‘safe to run’,
‘rejection standard’, ‘IRCA rejection and debit standard’, 'intensive exami¬
nation’, etc., though the IRCA Rules lay down only one standard, namely,
the ‘rejection and debit standard’. Although some Railways have issued
instructions in book-form for the train examining staff, it seems that some
confusion still -exists in the minds of staff about the distinction between the
different types of'train examination, and particularly as to ‘safe to run’
examination. Now that a uniform time schedule for the different types of
train examination is being laid down by the Railway Board as stated
earlier, we suggest that the scope of each type of trhin examination given
to goods rolling stock should be clearly defined for the guidance of the
staff and the components to be examined and checked, spelt out and in¬
corporated in the rules. We have.already, in an earlier chapter, suggested
preparation of handbooks in simple language for train examiners and
some other categories of staff.

442. A General Manager during his evidence before us stated that the
incidence of derailments due to carriage and wagon defect* was high despite
the increasing emphasis on the examination of goods rolling stock. He
thought that the existing designs'Of rolling stock are outdated. This, he
went on to say, called for a thorough examination of the design of wagons
in respect of undergear fittings, etc. by a technical committee. This of
course does not necessarily imply that the existing designs of goods rolling
stock are unsafe for the performance for which they were intended. To us,
all aspects including examination, maintenance, design etc. have equal im¬
portance insofar as there is scope to reduce the incidence of derailments
due to carriage and wagon defects. We would like that apart from ‘defect
investigations^ which are being undertaken by the RDSO off and on in res¬
pect of component* which are reported to fail frequently, the design of
goods rolling stock, particularly IRS wagons should be further examined

113

by the RDSO or by a committee of technical officers to see if there are any
inherent defects and if any modifications are necessary in view of the
higher speeds being planned.

' 443. We had noted in Part I of our Report that about one-fourth of
the total number of derailments due to carriage and wagon defects are
caused by defective or broken springs or suspension, and another about one-
half of tne derailments on carriage and wagon account are due to broken
aklfes or journals, breakage of undergear, vacuum and brake fittings, de¬
fective wheels or tyres, defective or broKen axle boxes, binding brake blocks,
hot axles, etc. We understand that draw and buffing gear, springs and brake
undergear, other running iear, etc, are examined during all types of train
examination so that such defects are either rectified on trains or alternative¬
ly, wagons are damage-labelled for sicklines. Even in the Ahdal system
which identifies the groups with their specific jobs, it is essential that the
groups concerned should be educated in respect of the incidence of derail¬
ments caused by the various defects and their consequences in order to pro¬
vide motivation for a higher standard of workmanship. It is also necessary
to provide the essential gadgets for examining the various components and
to train the examinirig staff in their use.

444. Maintenance of goods wagons —The repairs on goods wagons are
carried out on trains or in traffic yards, in sicklines and in workshops. The
scope of maintenance on trains and in traffic yards has been progressively
enlarged in order to avoid wagons being put out of commission. One Chief
Mechanical Engineer stated during his evidence before us that the carry¬
ing out of too many repairs in traffic yards was not a correct policy as the
attention paid to wagons cquld not be of the same standard as that in the
sicklines. We fully appreciate the views of the Chief Mechanical Engineer-
and think that a satisfactory solution lies in identifying the repairs to be
carried out on trains-and in traffic yards, standardising the pre-requisites
for the proper carrying out of such repairs and then ensuring that the
pre-requisites are available,

445 . Sicklines —The wagons damage-labelled are attended to in sick¬
lines. Some of the sicklines are meant for ordinary repairs but selected
sicklines undertake major repairs. If goes without saying that sidelines
should have the necessary facilities ana Machines, tools and plant. Some
of the sicklines visited by us during our tours wpre reported to be deficient
in the strength of staff or in some of the facilities or equipment. We under¬
stand that on thjj recommendation of the Standards Advisory Committee,
the Railway Board have classified the carriage and wagon depots and sick¬
lines with respect, to the equipment ana'facilities to be provided therein
and standardised, the repairs to be carried out in each. We consider it im¬
portant that taking into 1 consideration the nature and extent of repairs to
be done, the facilities and equipment in each sickline should be surveyed
and the deficiencies made good.

446. All major sicklines need, in particular, to he equipped with wheel
lathes, ultrasonic testing equipment and burnishing machines. A hot box
is a common phenomenon on the Indian Railways At present, the axles
which run hot have to be sent to carriage and wagon workshops for testing
and attention. This results in considerable delays. The provision of wheel
lathes, ultrasonic testing equipment and burnishing machines in the major
sicklines will enhance the standard of maintenance of rolling stock in the
sicklines as a»les Will her; suftjfected to more scientific! examinatidn and
attention than is "possible:-with the pfesent rocthbd of chalk-testing:

114

447. We would like to observe here that every wagon, except those
fitted with roller bearings, goes to the sickline every six months for normal
axle box repacking. This is the occasion when the wagon should receive full
attention and be turned out in as perfect a condition as possible with'all
defects rectified. We are not sure it adequate checks are exercised on the
wagons coming out of the sicklines after repacking. These checks should be
greatly intensified as, in our view, the standard of repairs given to the
wagons would depend on the measure of inspection and supervision con¬
ferred at this stage.

448. Exantination and maintenance of coaching rakes —Coaching stock
receives attention in washing and pit lines where it is washed, cleaned and
maintained. Passenger carriages are given primary and secondary main¬
tenance in specified carriage and wagon depots. Such maintenance covers
all items which affect the personal safety and convenience of passengers as
well as safety of the carriages on run. In addition, carriages are given safe
to run examination at selected points during the journey of a train.

449. For proper attention on the washing and pit lines to be possible,
it is essential that the washing and pit lines are adequate in number,
they have proper lighting and drainage arrangements, the necessary equip¬
ment for examination and maintenance of carriages is available and the
rakes are placed in time by the station staff and are allowed to remain
there for an adequate length of time for proper maintenance to be given.

450. In, the course of our inspections on the various Railways, from
the evidence tendered before us and from the information contained in
the brochures given to us, we found that the facilities for the primary and
secondary maintenance of rakes were not adequate. We observed, for in
stance, that the facilities for attention to coaches at Bombay V.T. had not
'expanded commensurate with the increase in workload; the stabling
accommodation at Madras Central was inadequate; the number of pit lines
at Ajmer was inadequate resulting in a rake not getting sufficient time for
maintenance; there were no washing or pit lines for maintenance of metre
gauge coaching stock at Secunderabad, etc. We also found that washing and
pit lines being common, the pits remained full of filth and water due to defi¬
cient drainage and this prevented proper examination and attention to
undergear fittings. Inadequacy of illumination from the hurricane lamps
for the examination of undergear fittings of rolling stock was also men¬
tioned. We were told that the rakes had, at times, to be examined on plat¬
form lines which precluded a proper examination of the rakes due to the
existence of a high level platform on one side and absence of a pit. In this
background, we thought it fit to call for data in respect of maintenance of
rakes on platform lines (i.e. not placed on washing lines and pit lines) at a
few selected points on the Northern Railway, viz., Allahabad, Lucknow.
Delhi, New Delhi and Jullundur City for the year 1968-69. The results of
this study are shown in the following table:—

Number of rakes

Percentage

required to be

not placed on

of rakes

plaoed on

washing and pit

not plaoed

washing and pit

lines

on washing

lines for

and pit

maintenance

lines

23,383

4,968

21-2

451. Though the study is very limited in nature, it is sufficient to
highlight the magnitude of the problem and is, in our view, fairly represen¬
tative. We strongly urge that energetic steps should be taken to ensure the

115

provision of adequate number of washing and pit lines with the necessary
facilities, so that each rake is properly examined and maintained on wash¬
ing line or pit line. We also consider it necessary that there should be time¬
ly placement of rakes on the pitlines to facilitate examination of wheels
and undergear.

452. Incidence of damaged coaches due to electrical and mechanical
defects—"When a coach is unsafe to run or not fit for occupation by pas¬
sengers due to body or electrical defects, it is marked ‘sick’ and detached
from the rake of which it fqrms a part. Such sick cdaches are ordinarily
taken off the rakes for repairs at primary and secondary maintenance
centres. If a coach develops defects on the run, it is marked sick and de¬
tached at a station en route. The position of coaches marked sick for non-
scheduled repairs on the broad and metre gauges during 1967458 and the
first six months of 1968-69, i.e. a period of 18 months, is shown in An-
nexure VII.

453. When a coach requires attention which cannot be given on the
pit or washing line, it is ‘damage-labelled’ for placement in the sickline
where facilities for undertaking repairs are available. In sicklines, coaches
ace thoroughly examined and repairs carried out as required to ensure
their roadworthy condition. Apart from the periodical overhaul which is
given to coaches in workshops, scheduled repairs normally include re¬
packing of axle boxes and oiling them at specified intervals. Repairs other
than scheduled repairs are termed non-scheduled repairs.

454. We find that the percentage of coaches marked sick and detach¬
ed for repairs at stations other than the primary or secondary maintenance
centres, to the total number of coacnes marked sick was 6.2 on broad
gauge and 8.1 on metre gauge. Of these, the percentage erf coaches marked
sick and detached at stations en route alone to the total number of coaches
marked sick was 1.9 on the broad gauge and 3.4 on the metre gauge. A
coach marked sick en route is not only a source of discomfort and incon¬
venience to passengers but also a hazard to safety, apart from it causing
dislocation of train services. This is a matter which require particular
attention of the Railway administrations. We would emphasise that atten¬
tion to coaches at primary and secondary maintenance centres should be
intensified in order to reduce the overall percentage of sick coaches.

455. Coaches marked sick on mechanical account —We also studied
the mechanical defects for which carriages were marked sick during 1967-68
and the first six months of 1968-69. The result of our study is given in
Annexure VIII. It would be observed that running gear defects, i.e. those
relating to axle boxes, bogie frames, spring suspension and brake gear ac¬
counted for the highest percentage of the total number of defects on both the
broad and the metre gauges. It would be seen that the incidence of damage
labelling on this account was higher on certain types of coaches than on
others. The percentage of coaches damage-labelled due so wheel defects
was also on the high side, particularly in respect of ICF coaches on the
broad gauge Running gear defects and wheel defects accounted for 71
per cent of sick coaches on the broad gauge and 79 per cent on the metre
gauge. We mention these percentages with a view to emphasise the need
for greater attention to coaches at the maintenance depots. We further
suggest that a broad analysis of defects resulting in damage-labelling of

116

coaches should be , made, at regular intervals and the concerned ac¬
quainted with the results. Such a measure will be helpful in keeping the
• rain examining staff and supervisors on their toes.

456. Coaches marked sick on electrical account —It will also be seen
from Annexiure VII that about 22 per cent of coaches on the broad gauge
and about 10 per cent of coaches on the metre gauge were damage-labelled
due to electrical defects. The largest percentage of such coaches was those
falling under the head ‘other coaches’ or ’ICt” coaches on both the
gauges. While we are not unmindful of the incidence of pilferage of
electrical fittings, which often leads to damage-labelling of coaches, we
would urge that a detailed analysis of the causes of electrical defects be
made ana remedial measures taken to minimise the incidence of coaches
being marked sick on electrical account on all gauges. We consider that it
would be useful if the staff are made aware of the results of this analysis
with a view to improving the standard of examination and maintenance
of electrical installations in coaches.

457. Maintenance of electrical fittings in coaches —Elsewhere in our
Report, we have dealt with thefts of electrical fittings and the shortage or
inferior quality of electrical stores and spare parts. The need for adequate
training of electrical staff has also been dealt with in an earlier chapter.
Here we deal with measures to reduce the incidence of fires in coaches
due to electrical defects. The Chief Electrical Engineer, South Eastern
Railway, in a note submitted to us indicated that the incidence.of fires
was mainly on account of the following: —

(i) Fire in wiring on roof due to temporary connection and repairs
carried out on coaches in which cables had been cut and which
had been temporarily repaired with copper and aluminium
joints.

(ii) Defective cell connection and main battery connection chiefly
due to widespread pilferage of cell connections.

(iii) Incidence of fires in lavatories, junction boxes and couplers
due jtq theft on 15-way and 24-way junction boxes and conse¬
quential patch repairs.

458.. In the course of evidence before us, the suggestion about the
provision of a fuse in the negative wires in each compartment of steel
bodied coaches was generally favoured. Col. D. McMullen also informed
us that fuses are provided on both the positive and the negative wires
in coaches on the British Railways. We suggest that fuses should be pro¬
vided on both the positive and the negative wiring in steel-bodied coaches.
This would provide additional protection against earth leakages and short
circuits.

459. Some Chief Electrical Engineers and Divisional Electrical En¬
gineers gave qs. to understand that a system of fortnightly inspection of all
coaches has been introduced to check earth leakage in order to prevent
fires due to electrical defects. We suggest that the checking of earth leakage
with the help of , test lamps should be intensified and carried out at the
time of both primary and secondary maintenance of carriages. We further
suggest that the results of these checks should be watched both at the
divisional and headquarters’ level Spot checks by electrical engineers and
supervisors to ensure that testing is carried out properly would, in our
view, prove highly advantageous in Inning up the quality of work done
by staff.

117

460. Investigation of failures —The developing of a defect in a carriage
or a wagon on the run involves an element of danger. The defects are
likely to crop up in wheels, springs, brakegear, axle'Boxes, etc. It is, there¬
fore, particularly important' that such failures;of carriages or wagons are
investigated in a systematic manner. A retired Additional Member*;Rail¬
way Board, during the course of his evidence, emphasised: the need for
technical investigation in case of failures of carriage and , wagon compo¬
nent*. To start lyith, in order to keep the workload within limits, the
components which often fail should 1 be identified and subjected to technical
investigations. We suggest that a system for investigation of failures', of
certain selected, carriage and wagon components be evolved on lines com¬
parable to the investigation which is done at present in case of. engine
failures.

461. Our opinion as to the usefulness of investigatibhs into such
failures is supported by the practice recently adopted by the Northern
Railway. We find that with a view to exercising a check, and carrying out
a detained investigation into the cause of failure \>f( a coach, fixing! res¬
ponsibility and taking remedial measures to avoid recurrence of the failure,
the Northern Railway has defined a coach failure’ as under: —

A coach, carrying passengers, is considered to have-failed, when it
fs detached from a mail/express or passenger trilift enroute or
causes a delay of one hour or more to the train to which it is
attached due to: —

(i) Any mechanical defect in running gear, brake gear, under-
t frame, spring assembly etc.

(ii) Any electrical defect in the coach equipment, i.e. dynamos,
batteries, kent coupler, wiring, air conditioning equipment,
water raising apparatus, etc,

but a coach which is. involved in an accident is not to be considered
to have failed”.

462. The Northern Railway has also prescribed a Coach Failure Re¬
port to deal'with each case of failure of a coach whether on mechanical
or electrical account'.'

46$.'Defect .investigations ’—Despite the care exercised in the develop¬
ment oi design of individual components, certain conditions arise where
components either fail prematurely or are unable to give the performance
expected of them. In such circumstances, it is necessary to conduct detailed
detect investigations hearing in mind the initial design parameters adopted
and the actual conditions under which these components work; and to
carry out a scientific analysis of the conditions and causes which result in
unsatisfactory performance of such components. Defect investigations point
the way to improvement in quality and Maintenance and this ultimately
results in a Wore safe and reliable performance. We are glad to know
that such investigations are carried out by the RDSO and modificatlbns
are issued as and when necessary. While this is indeed a continuous pro
cess, we. suggest that results of investigations and recommendations made
by the ,RDSO should be uniformly disseminated to all Railways- for
appropriate action.

464. Modifications —It is, however, not enough t,bgt modifications are
notified to the Railways. Their execution _^nd the organisation to toa^ch
their execution are equally important, with a view to'.examine tpWMt
extent and. with what speed such modifications are carried out, we studied

118

ten modifications notified during the past few years which have a bearing
on safety in the running of carriages or wagons. The results of this study
are shown in Annexure IX.

465. We find from this study that instructions in regard to the same
modifications are, at times, issued by two or three separate authorities,
namely, the Railway Board, the RDSO, and the Integral Coach Factory.
There is also disparity in the dates of the issue of instructions concerning
the same component. For instance, the instructions for the provision of
safety chains to ‘Beni’ and 'Stones’ 60 ampere dynamos on ICF metre
gauge coaches were issued by the ICF under its letter No. CAI/A 65 dated
9-9-1965, by the RDSO under their letter No. EE/9/5 dated 28-1-1969
and by the Railway Board under their letter No. 69/Elec./495/3 dated
4-2-1969. We consider that in all such matters, it is the Railway Board who
should give clear instructions setting target dates for carrying out the mo¬
dification and should call for periodical progress reports.

466. We would also like to mention a few other aspects connected
with this matter which came to our notice. The South Central Railway
stated that they did not receive instructions regarding the modifications
concerning (a) provision of safety straps to prevent the equalising stay
from dropping and (b) replacement/repositioning of defective vacuum
reservoir suspension straps on ICF coaches. The Northeast Frontier Rail¬
way stated that they did not receive instructions regarding provision of
safety chains to ‘Beni 1 and Stones’ 60 ampere dynamos. It is needless for
us to say that arrangements for notification of modifications ordered by
the Railway Board to the Railway administrations should be such that
a situation does not arise where a particular Railway remains unaware of
them.

467. It is equally important that the modifications ordered in the
carriages and wagons in the interest of safety in operation are executed
within a specified time laid down after taking all the factors into considera¬
tion. It will also be seen from Annexure IX that the number of carriages
on which modifications are yet to be carried out ranges between 21.2 per
cent and 97.9 per cent. We also find that there was a time-lag'between the
receipt of instructions regarding the modifications and the issue of the
orders on the part of the Railways which ranged between, one month and
43 months in case of certain modifications. We cannot help expressing our
concern at this state of affairs and are strongly of the opinion that the
whole process of issue of modifications by the Railway Board and thereafter
the execution at the Railways’ level needs to be streamlined if the effort
and thought which go in ordering such modifications, for enhancing safety
are to serve any useful purpose.

468. Equalising beams on IRS metre gauge bogie coaches —The func¬
tion of the equalising beam on IRS metre gauge Dogie assembly is to
transfer the load to the two axles. Some serious derailments have been
caused by the breakage of equalising beams.

469. In the Gorakhpur Workshops, it came out in evidence that 60
to 80 per cent of the equalising beams were found cracked at the neck
during the last 6 to 8 months. At the New Bongaigaon Workshop, 1 the inci¬
dence of failure of equalising beams was put at 40 to 50 per cent.

470. In their evidence tendered before us, some of the Chief Mechanical
Engineers and the Works Managers mentioned that the equalising beams
were found cracked mostly at the swan neck ends and that the failures

110

were not due to design defect but resulted from defective manufacture.
One Works Manager, however, attributed the failure of the equalising
beams to a design defect. We were advised that the incidence of failures
was mostly on Jessops coaches. The equalising beams in about 1,300 coaches
were made of rimming quality steel.

471. The causes of failure of equalising beams at the swan end were
considered at various meetings of the Carriage and Wagon. Standards Com¬
mittee. The RDSO modified the design and its drawing No. W831 of
August, 1968 which incorporates some improvements was tinally approved
of by the Railway Board. According to this, the equalising beam is to be
manufactured from Class II steel to Specification No. IS 1875. Moreover,
equalising beams are provided wiith safety clamps, the design for which
was issued by the RDSO in 1968. The Railways have also been advised
to prevent over-crowding on these coaches.

472. We understand that instructions exist for the examination of
equalising beams of coaches every 3 months on the examining pits and in
the sicklines. During POH of coaches in wokshops, equalising beams are
tested for cracks with magnaflux or ultrasonic equipment. These cracks
are gauged and welded. The beams are also subjected to heat treatment and
normalised as necessary.

473. It is suggested that equalising beams which fail in service should
be replaced by those manufactured from Class II steel to RDSO’s Draw¬
ing No. W831, and Specification No. IS 1875 and safety clamps should be
provided as suggested by the RDSO. We have no doubt that if the
measures proposed are implemented dbrefully in the workshops during
POH of bogie coaches and in major sicklines as and when failures are
detected, the incidence of failures of equalising beams will be reduced
to the minimum.

474. Laminated bearing springs of BOX wagons —On the South East
em Railway, there was and continues to be heavy incidence of breakage
of bearing springs. The breakage occurs at the hanger atid to avoid de¬
tachment of a BOX wagon when one of its springs is found broken., the
South Eastern Railway has designed a clamp to be used at the broken end
of the bearing spring to prevent its lateral movement. With the broken
end of the spring strapped, the train is permitted to run at a restricted
speed of 20 m.p.h. (32 km. p.h.) till the next train examining depot where
the wagon is detached for repairs. The Chief Mechanical Engineer, South
eastern Railway said that there had been about 1,200 cases in which broken
springs were clamped during the last two and a half vears without any
derailment.

475. The Railway Board have also approved of the use of these clamps
on loaded BOX, BRH and BOI wagons in case of breakage of bearing
springs and have advised the General Managers of all other broad gauge
Railways. Trains with a wagon with broken spring damped can proceed
at the restricted speed of 20 m.p.h. (32 km. p.n.) to the next major train
examining depot where the broken springs are to be replaced.

476. It may be observed here that the Railway Board in their order
No. 62/M(N)/204/6 dated 11-10-68 have stated that in case of breakage
of springs of loadeid BOX, BRH and BOI wagons at roadside stations, the
train examining staff may fit damps where facilities for changing springs
do not exist to avoid detaching of wagons. These orders are somewhat im¬
practicable since it is hardlv ever that train examining staff are available

120

at roadside .stations. If the duty of clamping of broken springs is to devolve
on thenr it is unlikely that the detaching of the-wagon at roadside station
can be avoided.

477. During the course of evidence mixed views were expressed in
regard to the desirability or otherwise of clamping a broken spring and
allowing the wagon to proceed. This diversity c* opinion existed not only
among the officers, at the lower .level but also among-very senior mechani¬
cal engineers of the Railways.

478. While no case of derailment of a BOX wagon with its broken
spring stripped bis been repotted, it ajppears that the speed of movement
in the section would be seriously impaired if, a goods load is to proceed at
20 m.p.h. (82 km. p.h.) to the next train examining station where the
broken spring will have to be replaced. The distance between train examin¬
ing depots is often 160 to 240 kilometres.

479. The broken end of a spring butts firmly against the bogie frame
plate on account of the load. Whether the strap is effective enough to pre¬
vent angular displacement, however, seems doubtful.. There is no permis¬
sive clause in the Conference Rules Part III containing rules for train
examiners which permits any goods or coaching vehicle to run at ahy speed
with a broken spring. Taking into account the various features, we consider
that the appropriate course would be to detach a BOX wagon with a
broken spring at the station where this defect is detected, and to summon
the train examining staff for replacement of the spring. It is also suggested
that the plate* for the springs may be made from ulico-manganese -steel
instead of the . present specifications to reduce the incidence of Breakage.

480. We might mention that a retired Member of the Railway Board
stated that BOX wagons were invariably overloaded with minerals except
u hen they were loaded for the Railways and the overloading was at times,
to the extent of 12 tonnes per wagon. The practice of overloading often
resulted in the breakage of springs. It is essential that a satisfactory solu¬
tion to the problem of overloading of BOX wagons should be found to
reduce the incidence of breakage of springs.

481. Hot Boxes —We had, in Part I of our Report, noted that the

incidence of hot boxes on coaching stock had shown a rising trend since
1965-66'on the hroad gauge and the metre gau^pe and that the incidence
on goods stock had remained more or less static during 1967-68 as com¬
pared to the previous year.. We were advised by the Railway Board that
detailed instructions had been issued to the Railways regarding the follow¬
up action to be taken on the short-term and long-term measures xeconp
mended in the report of the Director, Research (Hot Boxes) and the targets
to be. achieved.. •. i -

4f)2. We had asked for information regarding the progress of imple¬
mentation of ten' selected reeommendatibris - in me-report. The positron,
as advised by the Railway Bbard, is shOwn 'ih Armexure X

483. We find from this information that in some cases either a pro¬
gramme for trials is stlli under preparation or indents for stores have been
placed or an experimental urder to prove the feasibility of manufacture of
certain components at a reasonable cost has been placed, etc. The Director,
Research (Hot Boxes) had observed in his Report that.many sicklineg were
in need,of considerable improvements in respect ofcoitesed accommodation,
pucca flooring in the working area, plant and equipment, pit accommoda¬
tion, layout, lighting for night working and supervision. He had also

121

stressed the need for more field engineers and supervisors. We, however,
find that all sidelines have not yet been fully provided with the necessary
facilities. The need for an increase in the number of field engineers and
senior supervisors is also under study by the Railways. We do not feel
heartened by the progress of the implementation of the recommendations
made by the Director, Research (Hot Boxes) in his spedal investigation
report and would urge that energetic action may be taken to implement
the recommendations.

484. We had, in Part I of our Report, observed that 16 per cent of
the total number of derailments attributable to carriage and wagon defects
occurred due to hot boxes, broken axles or journals. Such cases mostly
arise due to a hot exle not detected in time. The Director Research (Hot
Boxes) had recommended the installation of a few experimental hot box
electronic detectors on the Indian Railways. Unfortunately, the Railway
Board considered such an experiment as premature and highly expensive
in view of the tight foreign exchange position. The function of the hot
box detector is to detect and locate the position of any axle box which
may be excessively hot on a train as it passes by the installation, and to
display this information on a panel at the associated station. Since most
of the goods stock is not equipped with roller bearing axle boxes, the need
for detecting hot boxes in time will not only continue to have an impor¬
tant bearing on safety but would assume added importance with the present
trend of long-distance high speed trains. We would therefore recommend
research and study to develop a hot box detector for use on the Indian
Railways.

485. Maintenance of EMU coaches —We were advised by the Central
Railway that the most important problem in the maintenance of F.MU
stock was the non-replacement of overaged EMU stock which had been
commissioned as early as 1925. This stock was to be replaced from the year
1963-64 onwards. It was, however, decided to keep the old stock in service
attd utilise the new stock to run additional suburban trains. It was expected
that the old stock would be replaced by further supplies of stock from M/s
Jessops and Co. However, due to various factors like the difficulty of foreign
exchange, the programme of supply of new units by M/s Jessops and Co.
has been delayed by nearly two years and this has caused a considerable
strain on the maintenance organisation in maintaining the old stock. It
was understood that the supply of new units from M/s Jessops and Co.
would start arriving by about the middle of this year but even then, the
replacement would easily extend upto the end of 1970. We strongly urge
that whatever measures are needed to cause Jessops to fulfil the orders
placed on them in respect of EMU coaches be adopted.

486. Early this year, we were advised by the Central Railway that the
perentage of EMU coaches overdue periodical overhaul on that Railway
was 18.1. It was stated that this figure was high due to very heavy repair
work required to be undertaken on Breda ana 1951 stock. We hope that
with the increase in the capacity for periodical overhaul from 2 to 2.5 units
per day and the anticipated increase to 3 5 units per day, the backlog in
the periodical overhaul of EMU coaches would be cleared.

Brake Power

487. Trains on steam traction —According to the Railway Board's
directive, at least 90 per cent of the vacuum cylinders on passenger trains
on both the broad and the metre gauges must be effective. As for goods
trains, as many as possible of these must run with a minimum of 85 per

Lf J(N)3MofBailway—10

cent effective vacuum cylinders on the broad gauge and 75 per cent effec¬
tive vacuum cylinders on the metre gauge. This directive of the Railway
Board, we understand, has been further modified to the effect that from
1-7-1969 no goods train on the broad gauge must be allowed to leave the
originating station with less than 85 per cent effective vacuum cylinders.

488. In reply to the questionnaire addressed by us, the Railways had
indicated that all passenger and goods trains on the broad and metre
gauges are running fully vacuumed and the targets laid down by the Rail¬
way Board have been by and large achieved. In the evidence which was
tendered before us a number of train examining staff and some mechanical
engineers, however, pointed out that the percentage of non-effective vacuum
cylinders on trains was usually considerable. One train examiner stated
that in a load of 72 wagons, there were usually 16 to 17 inoperative vacuum
cylinders; at times this number rose to 25. It also came out in evidence
that the brake power shown in the train examiner’s certificate was usually
written out in a routine manner and did not correspond with the brake
power actually obtained. A Chief Mechanical Engineer stated that it was
difficult to create the prescribed amount of vacuum and the gauges in the
locomotive and the brakevan of a steam-hauled long goods train hardly
ever showed that it had been achieved. He said that the prescribed amount
of vacuum could be obtained in strictly controlled conditions and not dur¬
ing the normal run of the train.

489. In their replies to the questionnaire, the Railways also stated
that between the originating and the terminating points of a train, a drop
of 2 to 8 per cent occurred in the percentage of active vacuum cylinders.
This was attributed to improper adjustment of brake rigging, inferior
quality of rubber fittings such as rolling rings, diaphragms and neck rings,
wear and tear on the run, attaching and detaching of stock enroute, defi¬
cient performance of the cylinders, etc. During the course of evidence too,
one mechanical engineer admitted that on the run of the train a heavy drop
occurred in the percentage of effective vacuum cylinders.

490. The Divisional Superintendent, Khurda Road stated in his evi¬
dence that the staff had a hazy idea about the manner of testing of brake
power of a train. He added that he and his mechanical officers had evolved
a drill as to how to check the brake power and this had been widely cir¬
culated to the staff; in addition a suitable gauge for measuring the piston
travel had been designed and supplied to the staff. The Divisional Superin¬
tendent added that the gauge had proved very useful in testing if the travel
of the piston conformed to the limits laid down.

491. The General Manager, South Eastern Railway, informed us that
unilaterally he had prescribed 90 per cent effective vacuum cylinders for
all goods trains and steps had been taken to see that this did not remain
a mere paper prescription. He, however, pointed out that the drive to have
improved brake power on trains must be an all-Railway affair. He added
that in respect of a number of trains received from adjoining Railways
even the Railway Board’s target of 85 per cent effective vacuum cylinders
was not realised.

492. We entirely agree that the directives in regard to the prescribed
percentage of effective vaccum cylinders on trains must be observed uni¬
formly on all the Railways. This acquires special significance since a large
number of goods trains run over more than one Railway. In fact the num¬
ber of effective cylinders on a train must be a special point of check by
the neutral train examiner. The safety of a train on the run depends to

123

a large extent on its brake power and it is of the greatest importance that
the staff who are actually to operate the train know the real position in
regard to the brake power available on the train. It is also essential that
the requisite brake power should be available on all trains and difficulties
arising either on account of defective material or other factors should be
overcome.

493. Narrow gauge trains —The infomation which the Railways fur¬
nished in reply to our questionnaire showed that on some narrow gauge
sections, passenger, mixed and goods trains were running non-vacuumed
or partially vacuumed due to the fact that some of the narrow gauge
locomotives did not have vacuum ejectors and the coaching and goods
rolling stock was not fitted with vacuum brake arrangements. We cannot
overstress the need for improving the brake power on narrow gauge trains
some of which run on steep graded sections even though the speeds may
be low. We understand that a decision has been taken to retain the exist
itlg narrow gauge lines. It, therefore, follows that endeavours should be
made to improve the safety factor in respect of trains running on such sec¬
tions. Locomotives, carriages and wagons should be equipped to the extent
possible with vacuum brake apparatus and where this is not possible
alternatives should be evolved as for instance, introduction of rail cars,
etc. Reliance upon hand brakes for the safety of trains is in our view not
only out-moded but also hazardous.

494. Diesel hauled twins —Diesel locomotives, both on the broad and
the metre gauges are fitted with such powerful exhausters that in the case
of goods trains, there is little or no indication in the driver’s cab of the
guard's action in destroying vacuum. In their evidence too, some guards
pointed out the difficulty of stopping diesel hauled goods trains as the
application of the vacuum brake in the brakevan did not give any indica¬
tion to the driver. In our discussions with the Railway Board, we found
that they appreciated the problem created by powerful exhausters on the
diesel-electric locomotives. We hope that a satisfactory solution would soon
be evolved.

495. Marshalling of anti-telescopic coaches on passenger trains— de¬
tailed instructions have been issued by the Railway Board in regard to
the mashalling of anti-telescopic coaches at either end of a passenger train
to afford the maximum protection to passengers in the event of a collision.
It came out during the course of evidence that the operating staff find it
difficult to identify an anti-telescopic coach from other steel-bodied coaches.
Even though the extant instructions permit attaching of a steel-bodied
coach when an anti-telescopic coach may not be available, the anti-telesco¬
pic characteristics of the two, we are advised, differ and the integral stock
being built by the Integral Coach Factory and the B.E.M.L. is, in this be¬
half, superior to the steel-bodied coaches built on IRS underframes. We
would, therefore, suggest that on all anti-telescopic coaches, an identifying
mark or code should be inscribed for the guidance of the operating staff
*o that in the event of stock of both types being available, the staff mar¬
shall anti-telescopic coaches in, preference to other steel-bodied coaches.

496. Goods brakevans —It came out in evidence that with the intro¬
duction of diesel and electric traction, the riding qualities of four-wheeler
brakevans on both the broad and the metre gauges at higher speeds are
anything but comfortable, specially that of a broad gauge brakevan at a
speed of 65 km. p.h. We would suggest that the spring suspension system
of the broad gauge four-wheeler brakevans should be redesigned to provide

124

comfortable riding at speeds of 75 km.p.h. or more. We would also suggest
that the suspension arrangements of the metre gauge four-wheeler brake-
•vans should be investigated with a view to improving their riding.

Carriage and, Wagon Workshops

497. Capacity —'During our visits to the workshops we observed that
the capacity for periodical overhaul of coaches in the New Bongaigaon
carriage and wagon, workshops was short by 48 units (in terms of four-
wheelers) per month. It was stated that the workshop was working in single
shift except the wheel section which had a double shift and that the intro¬
duction of a second and a third shift in all the sections would augment the
capacity of the workshop for periodical overhaul. We were told that on
account of inadequacy of capacity, 48 units of coaches were being sent to
the North Eastern Railway workshops for periodical overhaul. Even then
the capacity was below the requirements and the Railway Board had
allowed the Northeast Frontier Railway to undertake periodical overhaul
of coaches at an interval of 18 months instead of 12 months. We do not
consider this a satisfactory state of affairs. We hope that effective steps will
be taken to increase the capacity of the New Bongaigaon workshop for
periodical overhaul of coaches.

498. On the Western Railway, it was reported that the jposition in
respect of goods stock overdue periodical overhaul was unsatisfactory and
stood at about 17 per cent on 31-12-1968, because the demand for periodical
overhaul was more than the capacity available in the workshops. Efforts
were being made to increase the capacity for the periodical overhaul of
goods stock and in this context the manufacturing of wagons in the work¬
shops had been stopped. We were told that the Eastern Railway had also
agreed to help the Western Railway in the periodical overhaul of wagons.
It is essential that the percentage of goods stock overdue periodical over¬
haul on the Western Railway should be reduced considerably. Perhaps, the
action now taken, namely stopping the manufacture of wagons, if taken
earlier could have prevented such a situation.

499. On the Central Railway, about 25 per cent of the coaching stock
was reported to be overdue periodical overhaul due to the coaches not
being sent to the workshops in time. The need for regulating the flow of
coaches into the workshops for periodical overhaul on the Central Railway
is obvious.

500. Broken axles and journals, and hot axles —During our tours, we

found the carriage and wagon workshops generally not adequately equipped
with ultrasonic testing equipment. One Chief Mechanical Engineer, more¬
over, pointed out that the workshops were wanting in burnishing machines
which are essential. The need to equip every carriage and wagon workshop
with adequate ultrasonic testing equipment for testing axles and equalising
beams of IRS metre gauge bogies cannot be over-emphasised. We also
suggest that special efforts should be made to procure burnishing machines
for the workshops. We find that the provision of burnishing machines in
workshops has been recommended by the Director, Research (Hot Boxes)
also. '

501. Roller bearing axle boxes —Roller bearings are being introduced
progressively to avoid hot axles. All the ICF and the BEML coaches are,
at present, being turned out with roller bearing axle boxes. With a view
to improving the service performance of goods stock and reducing the
incidence of hot axles, broad gauge heavy duty wagons such as BOX, BOI,

126

BCX, BRH, BRS and special type of stock like explosives vans etc., are
also povided with roller bearing axle boxes. Their use is being extended
to broad gauge tank wagons too.

502. Some of the train examining staff and the mechanical engineers
during the evidence tendered before us reported failures of roller bearing
axle boxes. One Chief Mechanical Engineer said that the incidence of cage
breakages was very high. Two things often gave trouble. Firstly, felt-
washers perished in use and dust got in. Secondly the locking of withdrawal
sleeve was sometimes defective. At the Integral Coach Factory, Perambur,
it was mentioned that self-aligned roller bearings had been introduced to
take up track irregularities but these were not manufactured locally. A
design had recently been given by the. Research, Designs and Standards
Organisation for high speed bogies with a view to utilising indigenously
manufactured roller bearings. There had been some cases of seizure of
roller bearings. It was stated that grease of approved specifications was to
be used and if things were done in the proper manner there should be no
failures. It was likely that in the reported cases of failures, substitutes might
have been used. It was also stated that the facilities of enclosed dust-proof
space available in the Integral Coach Factory may not be available on the
Railways.

503. We had asked for information in regard to the cases of roller
bearing failures on broad gauge coaching and goods stock for the year
1967-68. Only the Eastern, the Northern, the Southern, the South Central
and the South Eastern Railways furnished the information. Of the 64 cases
of roller bearing axle box failures on coaches, in 26 cases the roller bearing
axle boxes failed within 8 months of mounting or the last attention given
in shops, in 21 cases within 9 to 18 months and in the remaining 17 cases
the date of mounting or last attention was not available. Of the 64 cases
of failures, in 46 cases, the cause was not established as a result of the
inspection of the roller bearings. For the failure of a roller bearing, the
responsibility is normally fixed on the workshop or depot which attended
it last or the manufacturer concerned. We, however, find that this was not
done in 41 cases. Similarly, of the 89 cases of roller bearing axle box failures
on wagons on these Railways, in 68 cases the failure occurred before the
stock was due periodical overhaul and in the remaining cases the date of
mounting or last attention was not given. The cause of failure was not
established in 20 cases and in 40 cases the responsibility was not fixed.
With a view to ensure proper attention to roller bearing axle boxes, we
recommend that a periodical analysis of all cases of roller bearing failures
on coaches and wagons indicating date, year and station of mounting,
particulars of last attention given, cause and responsibility etc., should be
made so that remedial action if required can be taken. We might mention
that the Research, Designs and Standards Organisation had stated that
the Railways had been made conscious of the fact that a seized roller
bearing may lead to serious consequences.

504. It was mentioned by some of the mechanical engineers during
their evidence that the roller bearings manufactured both by the NBC
and the SKF failed occasionally. We therefore suggest that the Research,
Designs and Standards Organisation should go into each case of failure
and analyse every aspect including the materials used and the manufac¬
turing accuracies ana suggest remedies. We attach the utmost importance
to this matter in view of the increasing use of roller bearings on Indian
Railways.

126

505. The roller bearing axle boxes are attended to only in the work¬
shops at the time of periodical overhaul which is scheduled at intervals
of 9 to 12 months in case of coaches and three and a half years in case or
wagons, We consider it important that all the carriage and wagon work
shops are provided with suitable and adequate facilities for overhauling
of the roller bearing axle boxes at the time of periodical overhaul or when¬
ever such axle boxes are sent to the workshops. It is also essential that the
workshops where roller bearing axle boxes are attended to are provided
with dust-proof facilities.

506. We are advised that on the Japanese National Railways, the
standards of inspection and testing of roller bearing have been laid down.
The rolling stock are regularly sent for general overhaul to the workshops
after having run certain specified distances. In the workshops, the roller
bearings are dismantled, washed and minutely inspected by an electro
magnetic flaw detector, and reassembled and oiled and returned to service
only after their capability for perfect performance until the next general
overhaul is certified. It seems to us that the adoption of a similar system
would be of advantage to the Indian Railways.

507. Machines —During our visits to workshops on the Railways, we

were informed that some of the machines in the workshops were obsolete
and quite a number of them were overaged. We had already referred to
this feature when dealing with loco workshops. The obsolete or overagcd
machines affect the quantity and quality of work We, therefore, suggest
that the position in regard to the machines should be surveyed in all the
workshops and a programme should be drawn up to replace the outdated
or overaged machines on a phased basis. _

508. Examination of coaches after periodical overhaul After periodi¬
cal overhaul in the workshops and before being sent out coaches are sub_
iected to neutral control examination. We found that the percentage of
rejection of coaches in certain workshops was between 25 and 5b. The
rejection of the coaching stock was mainly due to defects in buffet heights,
wheels tight to gauge, trough flooring corroded, brake beams safety han-

broil" etc .^Thc percentage ot rljectiorrs reflect, the qual.ty of work
done in the workshops. We urge that measures should be taken to see
that the coach is in a perfect condition when offered for examination after
periodical overhaul, though a large percentage of rejections is due to
minor defects which are rectified in a short time, even so steps should b
taken to improve the standard of workmanship to minimise the perccntag

509 Neutral control examination —The Railways in their replies to
our questionnaire expressed divergent views on the usefulness of neutral
control examination. The opinion generally held was that while neutral
control examination of stock should continue in respect of major sickhnes
and workshops, it had outlived its utility in case o! yards because of the
» ;i , themselves going in for intensive examination of loads. A retired
AddSai^ Member oHhe Railway Board, however, expressed the view
that neutral control examination should not be cut down but may be
increased arid necessary facilities should be provided for the job to be done
nronerlv We feel that neutral control examination serves as a further check
ind^has been generally useful in keeping wagons in good fettle and we
consider that nothing should be done to weaken it in view of Us indepen-
. . character We understand that in the past, wagons were subjected

mneurial control examination when they were interchanged between diffe¬
rent Railways. The neutral control examination centres were thus gene¬
rally located^ at the junction points of two Railways. We are told that the

127

flow of traffic has now assumed an aii-India pattern and fast goods trains
like the super express goods trains run to a time-table between Howrah
and Delhi, Delhi and Carnac Bridge, Delhi and Madras, etc. In addition,
a number of express through goods trains run from one corner of the
country to another passing through several yards without examination. We
feel that in view of the changing pattern of traffic, neutral control exami¬
nation need not necessarily exist at the boundary points of the Railways as
used to be the case in the past. The Railway Board should examine the
existing set-up of neutral control examination and decide upon the various
points at which it should be located.

510. The Indian Railway Conference Association Rules Part III con¬
tain instructions for the examination of stock. This book was printed in
1962 since when a very large number of correction slips have been issued.
One of the Railways in its reply to our questionnaire has stressed the need
for revision of the Conference Rules. We endorse this suggestion. The rules
contained in this publication should not only provide comprehensively
for the examination and repairs of all types of stock which have been
introduced on the railways over past several years but the provisions having
a direct bearing on safety in railway operation as distinct from those
simply meant to keep the coaches and wagons in good fettle should be
dearly specified. Moreover, in order to reduce the incidence of derailments
due to carriage and wagons defects, the neutral control examination should
lay greater emphasis on the compliance of safety rules and regulations in
the matter of maintenance of stock. The conception of interchange of
goods stock between the Railways which led to the creation of neutral
control examination and evolution of Conference Rules has undergone
a radical change. This also underlines the need for the revision of the
Conference Rules Part III. We understand that the Railway Board have
under scrutiny a draft prepared by the IRCA for the examination and
maintenance of all types of coaching stock.

511. Checks by Neutral Control Flying Squad —The Indian Railway
Conference Association publishes annually a 'Report on the broad and
metre gauge wagon pools and neutral control of w<agon examination* which
includes the results of the surprise checks conducted by the neutral con¬
trol flying squads. We suggest that the results should clearly specify the
percentage of wagons found unsafe to run to the total number of wagons
checked. At present, the number of wagons with rejectable defects is indi¬
cated in its report. The figures now published do not indicate the extent
of unsafe defects on the stock checked as there is no clear definition of
what is called 'safe to run’ examination.

512. Overaged rolling stock —Based on the traffic projections made
by the Working Group of Rail Transport for the Fourth Plan, the origi¬
nating freight traffic in 1973-74 has been assessed at 264 70 million tonnes.
As regards non-suburban passenger traffic, an increase of 23.06 per cent
in vehicle kilometres is anticipated during the five-year plan period. The
estimates of suburban passenger traffic have been determined by trend pro¬
jection. The requirements of each metropolitan area have been separately
assessed. For this traffic target, the total plan outlay of Rs. 1,700 crores was
considered necessary. In view of the smaller allocation of funds, however,
the railway plan has been curtailed to a total investment level of Rs. 1,525
crores.

513. The reduced allocation will be sufficient only to carry 255 million
tonnes of originating freight traffic and support an increase of 19.8 per
cent in non-suburban vehicle kilometres during Fourth Plan period. It has

been proposed by the Ministry of Railways to bridge the gap between
transport availability and its requirement by continuing as much overaged
rolling stock in use as possible.

514. The provision for locomotives on replacement and additional ac¬
count, if fully implemented, is expected to leave 1,450 locomotives (in
steam equivalents) on the broad gauge, 682 on the metre gauge and 239
on the narrow gauge overaged at the end of the Fourth Plan. In respect
of wagons 16,996 wagons (in four wheelers) on the broad gauge, 4,949
wagons on the metre gauge and 2,837 wagons on the narrow gauge will
remain overaged. A total of 3,635 bogie passenger coaches of all gauges will
similarly continue in service beyond their prescribed life.

515. It is obvious that special attention will have to be given to such
stock during overhaul as well as during day-to-day maintenance. The peri¬
odical overhaul may have to be given to such stock even at shorter inter¬
vals to keep them road worthy and safe for operation. We would urge the
Railway Board to give serious consideration to this matter so that the use
of a larger proportion of overaged rolling stock by itself would not ad¬
versely affect tne element of safety in train operation.

Chapter XI
STORES

516. Whether it is a question of keeping locomotives or rolling stock
in good fettle or of maintaining signalling equipment and permanent way
to prescribed standards, it. is of vital importance that: to accomplish the
task successfully the supply lines that convey spare parts and stores from
the supplier to the ultimate user keep moving with clock-work precision.
We had in Part I of our Report referred to the fact that considerable time
and energy of the executive officers is spent in chasing after the procurement
of items which are in chronic short-supply. The evidence which was tender¬
ed before us lends considerable weight to the complaint in regard to the
irregular supply of spare parts and stores, and indicates that the position
is worse than we had thought.

517. Shortage of spare parts and stores —In many of the workshops,
we received complaints from the Chief Mechanical Engineers, the Works
Managers and other workshop staff in regard to the shortage of wheels,
tyers, rubber fittings, etc. A number of these witnesses admitted that often
the work was held up on account of these shortages. On one Railway, the
Chief Mechanical Engineer reported that 20 locomotives were standing
idle awaiting the supply of roller bearings. On another Railway, the Chief
Mechanical Engineer reported that the shortage of stores and spare parts
affected the carrying out of scheduled repairs of locomotives. This witness,
in particular, referred to the difficulty in getting tyres, and brake blocks
and said that he ‘had to beg’ for wneels, pistons, crossdie ads, etc., from
other Railways. Many of the officers aftd staff -admitted that to keep the
rolling stock in service they have to resort to the practice of cannibalisation
without which a good number of the railways’ valuable and revenue earn¬
ing rolling stock assets would remain idle and out of operation. There were
widespread complaints in regard to the scarcity of certain imported raw
materials from which certain vital components are manufactured indige¬
nously. This complaint was voiced particularly by the Eastern Railway
according to whom the components manufactured from imported raw
material were in continuous short supply.

518. We were also apprised of the difficulties caused by non-availabi¬
lity of rubber-fittings, brake blocks and small parts like truss bar nuts,
trolly hanger nuts, grover washers, pins, cotters, etc., which affect the pro¬
per maintenance of carriages and wagons. On one Railway there were
complaints in regard to the non-supply of spare parts for BEML coaches,
particularly, roller bearing wheels and bogie bolster springs.

519. Shortages of components like relays, battery materials, signal
pullies, bulbs, signal glasses, etc., were often highlighted in the evidence
of signal inspectors and maintained and of many of the Chief Signal and
Telecommunication Engineers. Particular mention was made of certain
imported components like relays, pneumatic treadles, signal lamps, parts
of air compressors, points machines, and spare parts for route relay inter¬
locking installations. These witnesses were greatly exercised about the
spare parts of the more sophisticated types of installations.

129

130

520. Some Controllers of Stores during their evidence claimed that
the compliance percentage of the stores was from 94 to 95. On the face of
it, this would seem a high accomplishment but as one General Manager
warned, assessing of the availability of the stores in terms of the com¬
pliance percentage is apt to give a distorted picture. He pointed out that
even if for argument’s sake the compliance percentage may be 94, the short¬
age of the remaining 6 per cent of items which may be essential for main¬
tenance would easily hold up the work and immobilise valuable rolling
stock and other assets,

521. We refer, in some detail, to the procedure of procurement of
stores on the Railways in the subsequent paragraphs. Here we would like
to stress two things. Firstly the policy in regard to imports of vital parts
required for maintenance of valuable assets as also the procedure of re¬
lease of foreign exchange needs to be thoroughly reviewed so that not only
is the available foreign exchange utilised to the best possible advantage
but also the short-sighted policy of saving some little foreign exchange at
the cost of keeping valuable assets idle is avoided. Secondly, the chimerical
impression which the compliance percentages of 90 to 95 evoke is apt to
prevent the focussing of the administration’s attention on the need to
streamline their supply lines apart from the smugness which these percent¬
ages induce in the Controllers of Stores of which we found a fair
amount of evidence.

522. Inferior quality of tools and stores —Shortages apart, we found,
during our tours of the various Railways, the staff complaining constantly
about the inferior quality of tools, stores and spare parts. The signal
maintainers and inspectors whom we met, were almost without exception
exercised about the poor quality of hand tools like adjustable spanners and
screw drivers, and spare parts for the maintenance of signalling equipment
like bulbs, battery material, etc. They represented that frequent breakage
of tools and failure of components increased their workload manifold.
More than one witness complained that the indigenous substitutes of im¬
ported signalling components had turned out to be highly unsatisfactory.

523. While we were on a visit to a major loco shed, the enterprising
Divisional Electrical Engineer organised in the headlight section of the
shed, a small exhibition of certain spare parts and components which were
brand new but which could not be put to use as they were either of the
wrong size or they did not match with the components in conjunction with
which they were supposed to be used. This improvised exhibition which
we visited demonstrated amply how frustrating it would be for the execu¬
tive and the staff to be unable to put to use even the brand new parts when
on paper the depots may be well stocked.

524. Complaints were voiced at numerous places in regard to the
poor quality of rubber rolling rings and other rubber fittings. It was point¬
ed out that vacuum cylinders were frequently rendered inoperative due
to the poor quality of rubber rolling rings and as a result, the consump¬
tion of this item had gone up enormously.

525. The Chief Electrical Engineers of two Railways complained to
us that the maintenance of electric locomotives has suffered because of the
use of indigenously manufactured spare parts of inferior quality. A Gene¬
ral Manager attributed this state of affairs to the lack of rigid inspection
of the tools, stores and spare parts accepted for the Railways. Yet another
General Manager stated that the practice of accepting the lowest tenders
is responsible tor this state of affairs. Other witnesses told us that in order

131

to comply with the government’s policy of encouraging small-scale indus¬
try, the procurement of tools and spare parts is being made generally on
the basis of the lowest quotation tendered. Since in most cases it is not
possible to furnish the detailed specifications of the articles required, the
process of purchase is initiated purely on the basis of nomenclature of the
tool suitable for a particular job. The tenderers who quote the lowest
rates usually submit a sample which is fairly satisfactory from the point of
view of size, dimensions and specifications. When, however, bulk supplies
are made the materials received are of substandard quality, the dimen¬
sions are not true and the finish far from accurate. It was also stated that
most of the tenderers have no quality control organisation or testing faci¬
lities required particularly for precision machine tools nor have the
manufacturing units any qualified technicians or engineers. Often the parts
are manufactured in dny workshops housed in a small hutment or a
garage. No gauges or jigs are available with the manufacturers to ensure
accuracy or the right finish and they are blissfully ignorant of the actual
purpose for which the parts are required. The raw materials used for
manufacturing such tools and parts are far inferior in quality and strength
to those used by reputed manufacturers who may have put in years of re¬
search and experience before they manufacture and market their products.
In the stores depots on the Railways the material is generally accepted
after visual inspection and the sub standard parts passed on to the consu¬
mers who thereafter bear the headache.

526. The Director General, Supplies and Disposals, stated before us
that the inspectorate wing in his organisation inspects the stores for the
Railways also and makes sure that the items supplied conform to the speci¬
fications laid down before they are despatched to the users. The inspectors
after inspecting the stores put their seals on them. When asked whether
the manufacturers invariably put their markings on the articles, the
Director General, Supplies ana Disposals, stated that the choice whether
to put their marking on the article or not rests with the manufacturers
and that the consignee has the right to reject the stores at the destination
if he finds that the material does not conform to the quality prescribed.
The rejection has, however, to be made within a prescribed period.

527. We have no doubt that the inferior quality of tools, stores and
spare parts, apart from turning out to be false economy in the end is highly
frustrating inasmuch as it throws additional burden on the staff in the
performance of their duties and renders the work of repair and main¬
tenance more onerous. In many instances where due to the unreliable
quality of spare parts, shoddy repairs are effected, safety too would be at
stake. Needless to say, it would be more prudent and economical to pro¬
vide tools, stores and spare parts of the requisite quality, readily identifi¬
able and covered by adequate guarantees by paying a proper price in the
beginning. In our view, the rejection clause referred to by the Director
General, Supplies and Disposals, would often become inoperative in the
absence of manufacturers' markings on the tools and spare parts. Further¬
more, since, in practice, the inferior quality of the tools or spare parts
becomes known only when they are put to actual use, the period of limi¬
tation usually renders the rejection clause ineffective.

528. We lay great stress on the need to restore in the purchasing
authority the self assurance that rejection of the lowest tender would not
be misconstrued if the purchasing authority has carefully applied its mind

132

to the various factors and that what the administration expects of its pur¬
chasing officer and agents is to purchase wisely and not merely cheaply.
We had, in Part I of our Report, occasion to refer to over-emphasis on ac¬
cepting the lowest tenders due to the fear in the purchasing authority of
criticism which may be engineered by the rejected tenderers, We reiterate
here that the administration should endeavour to insulate its purchasing
officers from such criticism if it is satisfied that the discretion was exer¬
cised for good and sufficient reasons.

529. Manufacturers’ markings —We also consider that as a rule all
tools and spare parts must have the manufacturers’ markings on them. A
manufacturer who adopts a trade mark becomes, in our opinion, honour-
bound to give due regard to quality. Insistence that the manufacturers
imprint their markings on their articles is, in our view, bound to give a
fillip to the quality of manufacture.

Procurement of stores through the agency of Directorate General of
Supplies and Disposals

530. The equipment and stores for the Railways are purchased partly
by the Railway Board and by the Railway administrations direct and
partly through the agency of the Directorate General of Supplies and Dis¬
posals which is a centralised purchasing wing functioning at present under
the administrative control of the Ministry of Foreign Trade and Supplies.
The work of procurement of stores through this agency is in accordance
with the allocation of business rules of the Government of India.

531. We had in Part I of our Report referred briefly to difficulties
which are being experienced in respect of items procurable through the
Directorate General of Supplies and Disposals and had observed that des¬
pite some improvement having been effected recently, the procedure still
continues to be far from simplified. These observations received affirmation
from the evidence tendered before us by a large number of officers includ¬
ing several Controllers of Stores and other senior railway officers.

532. It was pointed out to us that heavy delays occur in acquiring
stores through this agency because firstly the channelising of indents
through an outside agency is itself a time-consuming process and secondly
the purchase officers in the Directorate General of Supplies and Disposals
not being responsible for railway operation are not appreciative of the
urgency with which stores may be needed and give undue importance to,
and engage themselves in, needlessly cumbersome and time-consuming
forms and procedure. The singleness of purpose which must exist between
the purchasing agency and the user is missing when railway equipment
and stores so essential for the safety of railway operation have to be
acquired through an agency not responsible to the railway organisation.
Where promptitude should have been the prime consideration, a system
has instead come about which is riddled with procedural complexities and
consequent delays.

533. We examined in some detail the procedure for placing the in¬
dents, the delays in their submission, coverage of the indents, materialisa¬
tion of supplies and other associated matters like the lead time, the carry¬
ing cost of inventory, the remuneration paid by the Railways for the ser¬
vices rendered by the Directorate General of Supplies and Disposals, the
advantages claimed for the bulking of indents, etc.

133

534. A publication known as “Standard Vocab cum-Programme Book
for submission of indents by Indian State Railways” lays down the various
schedules including the dates of receipt of indents by the Directorate
General of Supplies and Disposals and the interval of time required for
checking and bulking of indents, processing of bulked indents, placing of
contracts and finally the lead time, i.e., the likely period after which the
supplies would commence depending on the nature of the commodity and
its availability in the market. This book was published in 1950 and was
last revised in October, 1959. We have been given to understand that the
revisions have been mostly in respect of the dates of submission of indents
to the Directorate General of Supplies and Disposals and that little or no
revision has been made in respect of time intervals for the remaining
operations. In other words, the time required for processing of indents
in the office of the Directorate General of Supplies and Disposals and the
lead time required for procurement of stores has thus remained more or
less unaltered for nearly two decades. We are unable to appreciate why
despite the enormous industrial advancement made in this country during
the last two decades and the improved materials management methods
which are being employed everywhere, the time intervals for processing of
indents and procurement of stores should continue to remain unaltered.
We have no doubt that their continuance in the present form is unjusti¬
fied.

535. The Director General, Supplies and Disposals, during his evi¬
dence before us stated that the indents complete in all respects including
detailed specifications must be placed on him about two years in advance
in most cases. He also mentioned that the delays in the procurement of
stores were mostly on account of late receipt of the programme indents
from the Railways and that more than 50 per cent of the indents were
received late. He expressed the view that if it is to be ensured that the
supplies are made available in time, it is essential that the indents be sub¬
mitted to the Directorate General of Supplies and Disposals' according to
the prescribed schedule.

536. Obyiously, it is unrealistic to expect an organisation as complex
as the Railways which has been developing at fast pace and undergoing
modernisation to assess its requirement of stores 24 months ahead. Firstly,
the Railways have to work to an annual budget. To keep in step with this
pattern the procedure for all normal items of railway equipment and
stores should be such that demands can be progressed well within the
budget year. This means that the placing of orders and the deliveries of
material to which the orders refer should be compressed as far as possible
within a period of six to nine months and should not in any case exceed a
12 month period. Any pattern, therefore, which visualises a period as
long as. 24 months between the placing of a demand and its final and com¬
plete fulfilment appears to be unrealistic against the background of
budgetary provisions. Furthermore factors like an ever-increasing and yet
changing pattern of traffic which is closely linked up with the growth of
industrial activity in different parts of the country, the unpredictable law
and order situation in the country which on the Railways is reflected in
the wide-spread incidence of thefts of railway material and cases of vanda¬
lism, make precise forecasting of requirements in any event difficult but
with a procedure which prescribes a lead time of two years make things
impossible.

134

537. In order to examine to what extent the complaint of delays in
indenting was justified, w'e obtained an analysis of the position for a
period of 12 months, i.e., from February, 1968 to January, 1969, from the
Railway Board. This is shown below: —

Months

Total number of
programme indents
received by the
DGS&D

, - •* -\

Indents Items

Programme
indentB received late
by the DGS&D

i -*-

Indents Items

February, 1988

116

Mareh, 1908

149

April, 1988

May, 1908

150

583

June, 1908

130

July, 1908

162

....

August, 1988

203

September, 1968

^ 74

180

October 1968

163

November, 1908

December, 1988

January, 1909 .. .. 1 . l ; :if

113

192

Total

849

2,118

104

Overall percentage of late indents and items

Number of indents

’■*%

Number of items

4-9%

538. We were told that the Railway Board had conveyed this posi¬
tion to the Directorate General of Supplies and Disposals in current cor¬
respondence on the matter. It would be seen that the overall percentage of
late submission of programme indents has been of the order of 7.3 per
cent on the basis of the number of indents and 4.9 per cent on the basis
of the number of items. The Directorate General of Supplies and Dispo¬
sals conceded during his evidence that he has been authorised to procure
stores against the indents received in time leaving out those received late.
In the light of these facts, the delays which occur in the procurement of
stores can hardly be ascribed to the late receipt of indents alone.

539. On the other hand, when it comes to the coverage of indents and
the materialisation of the supplies, the picture is different and heavy de¬
lays take place according to the information furnished by the Railway
Board. This is reproduced at Annexure XI.

540. It. will be seen that during 1966-67, only 29 per cent of the in¬
dents of the Eastern Railway and 36 per cent of the Western Railway
were covered in time. The delay in the remaining varied from 1 to 11
months. Similarly, the extent of delays in the supplies on the basis of origi¬
nally prescribed delivery periods ranged from 1 to 20 months. The posi¬
tion, rhus, is depressing both in respect of the coverage of indents and the
materialisation of supplies through the Directorate General of Supplies
and Disposals.

135

541. In addition to these delays, we find that the supplies against
several contracts for which the original delivery dates had expired, in some
cases years ago, still remain outstanding. The position as on 31-1-1969 was
as under: —

Year A/T was plaoed

Number of con¬
tracts outstanding
for supply as on
31-1-09

1001

1002

•97

1903

257

190t

520

1905

1,044

I960

624

1967

951

1908

847

Total 4,844

542. The above data were compiled in the office of the Director Gene¬
ral of Supplies and Disposals. When during the course of his evidence, he
was shown these figures, he stated that perhaps the position may have
arisen because these items may not have been available in the country to
the required extent. When we asked him why the contracts should have
remained outstanding and not been cancelled even after a lapse of so
many years, no clear reply was available. In the face of these facts, we can¬
not but express our keen disappointment over the delay in procurement
of railway equipment and stores through the agency of the Directorate
General of Supplies and Disposals.

543. Tracing the growth of this central purchasing agency histori¬
cally, a department of the Government known as the ‘India Stores Depart¬
ment’ was established in 1922 on the plea that "the local officials are, at

f >resent, greatly handicapped for want of information regarding facilities
or using the existing Indian sources owing to the absence of a central

authority.”. If this was the justification of the central purchasing

agency, it is no longer valid in the wake of large scale industrialisation
which has since taken place, the regional dispersal of industries and the
growth of newspapers and other mass media which convey industrial and
commercial intelligence all over the country.

544. The Director General, Supplies and Disposals, had also contend¬
ed that it would be inadvisable to have more than one central purchase
organisation. For one thing, the economies of centralised purchase have
to be weighed against the disadvantages which might flow from such a sys¬
tem and obviously there should be no hard and fast rule about this. Be
sides, the functions of purchase cannot be divorced from the allied func¬
tions of standardisation, control on inventory, value analysis and control
on consumption. Scientific materials management is possible only if the
function of purchase is integrated with the other functions of materials
management.

545. Advantages claimed on behalf of bulking —The most talked of
advantage of procurement through the Directorate General of Supplies
and Disposals is claimed to lie in the economy which results from the

186

bulking of demands for common user items. This price advantage cannot
obviously be considered in isolation from the other essential features of
the system, namely, the long lead time and the correspondingly heavy cost
of carrying inventory, the tees paid by the Railways for availing the
services of the Directorate General of Supplies and Disposals etc. As already
slated, the Directorate General of Supplies and Disposals requires the in¬
dents to be placed on them about two years in advance. Apart from the
fact that an assessment of requirements so much in advance would be un¬
realistic, it enjoins on the consumer to maintain heavy' inventories to guard
against a possible failure during this long period and this, in our view,
would set at naught the advantage of bulk purchase. During our discus¬
sions with the Railway Board, it was indicated that the price advantage
in the items which are bulked may perhaps be of the order of 4 to 5 per
cent. As against this, the cost of carrying inventories was stated to be of
the order of 15 to 20 per cent. Taking into account the interest which has
to be paid, the maintenance cost of depots, the accountal of wastages and
deterioration etc., the level of stock which has to be maintained at pre¬
sent, is, according to the Railway Board, on the basis of seven months’ re¬
quirements. As against this, we were told that the Japanese National Rail¬
ways keep stock equivalent to three months’ requirements, the U.S. Rail¬
roads two to three months’ and the British Railways five months’. The
Railway Board stated that they could cut down the inventories from seven
to five months’ requirements if they were allowed to procure the supplies
themselves. Moreover, in the case of a large number of items, as for
instance, petroleum and other oil products, cement, coal, steel, etc., the
advantage of bulking of indents is only illusory since in such materials
either the price is controlled or the items are provided at fixed prices by
public sector undertakings. Besides, there are several items of stores which
are either exclusively required for the Railways or are procured separately
for the Railways even if some other consumers might be using them. This,
thus, leaves only a few common user items which admit of bulking at
present. It, therefore, appears to us that too much has been made of the
benefits resulting from bulking and that too little attention has been paid
to the disadvantages inherent in the system of procurement of stores
through an agency not involved in the running of the railways. In our
view, the disadvantages in this system clearly outweigh the advantages.

546. Taking all these factors into account, we are clear in our minds
that the responsibility for procurement of stores and spare parts for the
Railways should rest squarely with the Railway Board and the Railway
administrations without bringing into picture the agency of the Directo¬
rate General of Supplies and Disposals. This will lend stability, perma¬
nence and continuity to the procurement of railway equipment and stores
and would impart a greater sense of urgency to the officers of the Railways
entrusted with the responsibility of materials management. We were
assured by the Railway Board that they have the basic organisation to rep¬
lace this agency for procurement of their own stores and with a little
strengthening here and there at a cost which would be far less than the
remuneration which the Railways, at present, are called upon to pay to
the Directorate General of Supplies ana Disposals for purchase and inspec¬
tion work, they would be in a position to take this job over. We consider
that this is a matter which can brook no further delay.

547. Powers of purchase of stores —We do not, of course, think that
the mere transferring to the Railway administration of the functions of
the Directorate General of Supplies and Disposals insofar as they relate

to procurement of railway stores will take care of all the short-comings
with which the stores organisation of the Railways is at present beset.
.Some reorganisation ol the existing system and streamlining and simplifi¬
cation of the procedure with a view to meeting the growing requirements
of the Railways would in our opinion be necessary.

548. We find that over the years while the levels of prices of materials
on the one hand and of the consumption of stores on the other have been
rising steadily, the powers of purchase vested in the Controllers of Stores
have not kept pace. For nearly 9 years, i.e. from 1958 till 1967, the Control¬
lers of Stores were authorised to make purchases of the items procurable
Lhrough the Directorate General of Supplies and Disposals upto the value
of Rs. 10,000 in each case or upto the value of Rs. 25,000 in each case in
icspcct of items the value of the annual requirement of which did not
normally exceed that limit. In May, 1967, the monetary limit of direct
purchase of the DGS&D items of stores by the Controllers of Stores was
raised from Rs. 10,000 and under to Rs. 25,000 and under in each case
irrespective of the value of the annual requirement of those items. We feel
that the present powers of purchase may not be adequate to meet the re¬
quirements keeping in view the price level and the needs of Railways. The
opinions voiced in the evidence tendered before us cast considerable doubt
on the adequacy of the existing powers.

549. It was suggested to us in evidence that the powers of purchase
of Controllers ol Stores should be increased to Rs. 50,000 or even
Rs. 1,00,000 with suitable increase in the powers of other purchase officers.
It was also suggested that the limits of purchase through ‘single tender’
and in case of cash purchase, should be raised to Rs. 2,000 and Rs. 1,000
respectively instead of the existing limits of Rs. 200 and Rs. 250. Sugges¬
tions were made to reduce the scope of Finance concurrence in the pur¬
chase of stores. One proposal made to us was that the Finance need not be
associated for purchases upto Rs. 10,000 and in cases where the value of
purchases exceeds Rs. 10,000, the stages of consultation with Finance
should be confined only to assessment of quality, association on tender
committee and issue of contract.. Several witnesses urged that there is need
to develop a proper buyer-seller relationship in respect of safety items of
stores so that the seller becomes more committed and has a greater stake
in his dealings with railways. For a tie-up of this nature, an assurance to
one or two firms in respect of each important item that the requirements
would be bought from them for a specified period, say three years, may be
necessary. This change in attitude would generate quality consciousness
as well as the need for timely delivery of stores.

550. We consider that these suggestions deserve the most careful con¬
sideration of the Railway administrations. We also feel that the powers of
purchase of stores at all levels should be kept under constant review by
the Railway Board so that they are adequate to cope with their ever-
increasing needs.

551. Decentralisation of stores —We came across much diversity of
opinion in regard to the efficacy of the present stores organisation on the
Railways in which, from a limited number of depots, the consumers in
far-flung areas are kept fed. Some Railways felt that any further dispersal
of the depots would result in larger inventories having to be carried;
others, however, felt that decentralisation of stores depots and setting up

L/J( N)3Mof Railway—11

i 38

of smaller depots near about the principal consuming centres would lead
to a more efficient supply service. It was suggested that under the present
arrangement where only a limited number of stores depots feed the
various sections of the Railways, there is considerable strain on the Divi¬
sional organisation which has to undertake numerous stores functions and
that by providing a suitable organisation under a stores officer to the Divi
sional Superintendent the divisional organisation would receive consider¬
able logistic support. This stores organisation could then, with advantage,
take over the functions of dealing with imprest stores, supply of require
rnents for works in progress, running of stores depots for spare parts and
tools at major sheds, dealing with sales, books, forms and stationery, un¬
utilised assets and what is most important relieve the users of the burden
of chasing after the procurement of stores from distant depots.

552. Among the advocates of decentralisation, the Southern Railway
had prepared a blueprint of a plan which according to this Railway would
not involve any appreciable extra expenditure to the administration. Ac¬
cording to this plan, the existing stores set up of the Railway could he
dispersed so that there would be a s'ores depot under the supervision of
a stores officer at an appropriate place in each division and at each
important consuming point. The plan appeared to us a useful one and
we thought it fit to circulate it to other Railways to elicit their views.
Some Railways have since favoured adoption of similar schemes; some
others consider that a scheme of this nature would involve extra expendi¬
ture and a few have chosen to reserve their opinion. During our discussion
with the Railway Board it was contended that with schemes of this sort
the inventories would go up to some extent. While there may be truth
in this, we feel that the problem of chasing of stores by executive officers
is one which calls for an effective solution. This is possible only if closer
coordination is established between the indentor and the supply depot.
While there may be strength in the argument that decentralisation would
result in somewhat larger inventories, the increase in the inventories would
be applicable mostly to the slow-moving items and is hardly likely to be
applicable to the fast-moving items. The Railways have already introduc¬
ed the ABC analysis system of stock items which facilitates categorisation
of. items on the basis of value analysis and indicates the extent of attention
and control required to be exercised on the different categories of items.
By a judicious exercise of controls prescribed by this system and of careful
classification of fast-moving and slow-moving items, it may be possible to
decentralise the stores organisation in a manner that the advantages of
having stores depots contiguous to the consuming centres are derived with¬
out subjecting the system to disadvantages arising out of larger inventories.

553. Scientific methods of inventory control and materials manage¬
ment —We had in Part I of our Report, stressed the need to adopt scienti¬
fic methods of inventory control and modern materials management
techniques. The planning and procurement of about 30,000 stock items
which are required to cater to repetitive demands and a large number of
non stock items which are equally essential for the efficient operation of
the railways necessitate the use of up-lodate techniques. We consider that
for effective and efficient materials management and the solution of various
complicated problems, the Railways would do well to seek specialist guid¬
ance from quarters who have the requisite expertise in materials manage¬
ment.

139

i>~) 4. Manning of the stores organisation —It was pointed out to us
that among the factors ailing the stores organisation on the Railways, one
is that the ministerial staff working in the stores branches of the zonal
Railways are ill-qualified to handle the stores work which in the course
of time has become highly technical and complex. We agree that materials
management today is a specialised job. Over-dependence on ill-qualified
ministerial staff would create problems for the stores organisation rather
than solve them. We have been given to understand that the necessity
for reorganisation of the stores department has been recognised by the
Railway Board and a Committee of the Controllers of Stores have recom¬
mended certain revised yardsticks. We have no doubt that their recom¬
mendations would go a long way in improving the stores organisation.

Chapter XII

THEFT, VANDALISM AND SABOTAGE

Theft of railway i equipment and vandalism

555. The evidence tendered before us by the staff and officers at all
levels showed LhaL thefts and vandalism on the Railways are a serious
problem from all accounts. It was contended that about 50 per cent of
the failures of signalling and interlocking gadgets is due to the theft of:
or tampering with the components. We have already indicated how wide¬
spread the theft of copper wire is on the railways and how this results in
prolonged interruption to communications. The evil, we were told, ex¬
tends to components of locomotives, coaches, wagons and electrical equip
merit having even a small copper or brass element.

556. We had the opportunity of hearing the views of the Inspector
General, Railway Protection Force on the subject. He said that theft or
destruction of railway equipment is a crime and the responsibility for its
prevention lies on the State police. He assured us however that this matter
was being constantly raised by him with the Inspectors General of Police of
the different States. At times when the incidence of thefts or destruction
of railway property assumed alarming proportions on a particular section,
patrolling of track by patrol specials is also introduced. The witness ad¬
mitted that some thefts were committed with the connivance of railway
employees and the personnel of the Railway Protection Force, In his view,
with the coming into forte of the Railway Property (Unlawful Possession)
Act in 1968, it would be possible to deal with the problem of theft of rail¬
way equipment more effectively. The witness pointed out some other diffi¬
culties like the shortage of prosecuting inspectors but said that it solution
of these difficulties was being found.

557. We were advised that it is difficult to establish the identity of
stolen railway equipment in a court of law. T.R.' is not a registered mark
and hence does not preclude its use by others. If registration of this or
any other mark would be helpful in identifying railway property in un¬
lawful possession, we do not see why the Railways should not have a regis¬
tered mark for railway materials and parts on which such mark can be
imprinted as this would obviously make it possible to take effective action
against persons in unlawful possession of railway property under the Rail¬
way Property (Unlawful Possession) Act.

558. The Inspector General stated that the Railway Protection Force
is not armed with suitable powers of arrest. The power to arrest flows
from section 12 of the Railway Protection Force Act, 1957, which reads
as under :

“12. Any superior officer or member of the Force may, without any
order from a Magistrate and without a warrant, arrest—

(a) any person who has been concerned in an offence relating
to railway property punishable with imprisonment for a
term exceeding six months, or against whom a reasonable
suspicion exists of his having been so concerned; or
I4ii

141

(b) any person found taking precautions to conceal his presence
within railway limits under circumstances which afford
reason to believe that he is taking such precautions with a
view to committing theft of, or damage to, railway property.”

559. It will be seen that this section permits an officer or member of
the Railway Protection Force to arrest any person for an offence relating
to railway property punishable with imprisonment for a term exceeding
six months. For offences not punishable with such imprisonment he has
no powers. The powers conferred under this section of the Act are thus
restricted.

Sabotage

560. During the eleven years from 1958 59 to 1958-69, 28 cases of
serious accidents were caused by tampering with track. Of these, in one
case the accident enquiry report of the Additional Commissioner of Rail¬
way Safety stated that the derailment was due to the placing of pieces of
ballast on rails probably by some cowboys to satisfy their own curiousity.
The remaining 27 cases were found to be the result of wilful tampering
with track according to the enquiry reports.

561. Of the 27 cases, 13 were accepted by the police as having been
caused by sabotage. In 11 cases, the police did not agree that the accidents
were the result of sabotage. Of the remaining 3 eases, in one they opined
that it was not unlikely for a locomotive to develop some unusual defect
leading to derailment and even if it were a case of sabotage, it was by some
disgruntled and mischievous railway employee and not by an outsider. In
another, the police, in the first instance, registered a case under section
128 of the Indian Railways Act which deals with the offence of endanger¬
ing safety of persons travelling by railway by wilful act or omission and
not under section 126 which deals with the offence of maliciously wreck¬
ing or attempting to wreck u train. This case is still reported to be under
investigation. In the remaining one case, the action taken by the police
is not available.

562. We are advised that in none of the cases in which the police dis¬
puted the findings of the Additional Commissioners of Railway Safety to
the effect that the accidents were the result of sabotage, was the matter
taken up by the Railway administration with the S'ate Government at a
higher level.

563. Of the 13 cases of accidents in which sabotage was accepted as
the cause by the police, they were unable to trace the culprits in seven.
One case is still under investigation. In the remaining five cases in which
the culprits were apprehended, in three the accused were acquitted, in
one case the culprit was sentenced to death and the remaining one case is
subjudice.

564. We cannot help coming to the conclusion from the above data
that cases of wilful tampering wth track do not receive from the State
police and the other authorities concerned with law and order the atten¬
tion that they deserve. The Kunzru Committee had suggested that in every
State having vulnerable sections of railway track, special arrangements
should be made for officers to specialise in the investigation of the problem
of tampering with track. The Railway Board had also stressed the need
for improving the quality of the investigating officers of the State police
bv giving them special training as far as the problem of tampering with

railway track was concerned. The Ministry of Home Affairs were apprised
of the position. They, however, did not accede to this request on the ground
that as less than one per cent of the total train accidents were due to
sabotage, prevention of such accidents could better be done by the Rail¬
ways themselves.

565. We regret we are unable to subscribe to the view of Ministry of
Home Affairs. We have already pointed out in Part I of our Report that
accidents due to sabotage have been increasing during the last 15 years
and the action taken to trace the culprits has been largely ineffective.
Besides, if the problem were viewed only from the viewpoint of percentage
of train accidents attributable to sabotage, it is apt not to place the gravity
of accidents resulting from sabotage in correct perspective. During the last
eleven years, the percentage of the number of persons killed, of those in
jured and the loss to railway property in serious accidents due to tamper
ing with track when compared with the consequences of all serious acci
dents were 29-8, 29.4 and 26.1 respectively. By their seriousness, these acci
dents created considerable commotion in Parliament and the Press. We
therefore, consider that this is a matter for serious concern and we do
not agree with the Ministry of Home Affairs that the matter may he left
to be tackled by the Railway Ministry themselves. We would urge the
Ministry of Home Affairs to ask the State Governments to take adequate
measures to apprehend the culprits and to prosecute them. The preven¬
tion of sabotage falls wholly and solely in the jurisdiction of the State
police. It is for them to judge the vulnerability of a particular section for
sabotage and to introduce patrolling of the railway track and take other
measures as and when necessary. The Stale police have the means to keep
aware of the activities of saboteurs and anti-social elements who are in¬
dulging in or are likely to indulge in unlawful activities. The Railway
Protection Force has its own intelligence but even their reports are sent
to the State police.

566. We would also point out that the Additional Commissioner of
Railway Safety is a technical and highly experienced officer independent
of the Railway administration and when after due investigation he comes
to the conclusion that the accident was due to wilful tampering with track,
the State police authorities should ordinarily be guided by the results of
these investigations. In any event where there is difference of opinion
between the State police and the Commission of Railway Safety in regard
to whether the accident was due to sabotage, the Railway administration
should not allow the matter to rest at that but should pursue this with
the State Government at a higher level.

567. By way of interest, we reproduce below the State-wise position
of the 27 serious accidents resulting From wilful tampering with track:

Bilim- .. •. .. ■ • 8

As noil .. .. .. .. 4

Andhra Pradesh . . .. :S

West Bengal . . • ■. .. .. . . :!

Mysore .. •. . • . • .. ..

Uttar Pradesh . . . • .. .. i

Maharasht ra .. .. . . . . 1

Gujarat . . ■ ■ . • .. I

Madhya Pradesh .. 1

Rajasthan 1

568. We had examined the provisions of the law dealing with offences
of theft, vandalism and sabotage. We have already referred to section 12

of the Railway Protection Force Act, 1957, which confers the power to
arrest on the personnel of the Railway Protection Force, The power to
arrest under this section becomes operative only in conjunction with sec¬
tion 12(3 of the Indian Railways Act, 1890. Section 126 of the Indian Rail¬
ways Act, 1890, provides for action against persons maliciously wrecking
or attempting to wreck a train. This section reads as under:

“126. If a person unlawfully—

(a) puts or throws upon or across any railway any wood, stone
or other matter or thing, or

(b) takes up, removes, loosens or displaces any rail, sleeper or
other matter or thing belonging to -any railway, or

(d) makes or shows, or hides or removes, any signal or light upon
ot near to any railway, or

(e) does or causes to be done or attempts ,o do any other act or
thing in relation lo any railway,

with intent, or with knowledge that he is likely, to endanger the
safety of any person travelling or being upon the railway, he shall
be punished with imprisonment for life or with rigorous imprison¬
ment for a term which may extend to ten years :

Provided that in the absence of special and adequate reasons to the
contrary to be mentioned in the judgment of the court, where a
person is punished with rigorous imprisonment, such rigorous im¬
prisonment shall,—

(a) in the ca-e of a firs; conviction, be not less than three years, or

(b) in the case of a subsequent conviction, be not less than
seven years.”

,569. The Inspector General, Railway Protection Force, pointed out
I hat the words “with intent or with knowledge that he is likely to en¬
danger the safe'y of any person travelling or being upon the railway” make
it difficult to secure a conviction under this section as it is difficult to
establish positively the intent or knowledge on the part of the offender.

570. We do feel there is need for suitably amending section 12 of the
Railway Protection Force Act, 1957 and section 126 of the Indian Rail¬
ways Act, 1890 in order that a person indulging in theft or destruction of
railway property or in wrecking or attempting to wreck a train can be
arrested and proceeded against with a reasonable chance of success. We
need hardly add that the menace of theft of and tampering with railway
equipment is too serious to be treated merely as an ordinary law and
order problem as it adversely affects safety in railway operation.

571. In addition to what we have stated in the foregoing paragraphs
and in paragraph 566 of Part f of our Report, it appears to us necessary
that steps should be taken to educate public opinion and to rouse the
social conscience of the people as to the heinous nature of the crime of
sabotage and of activities like vandalism and theft of railway material
which result or may result in serious disasters involving loss of life of in¬
nocent persons travelling on the railway. We make a special appeal to
public men, educationists and the Press who have the opportunity and
responsibility of moulding public opinion to do their duty in this con¬
nection. We also feel that the Railway Ministry and the State Govern
merits should keep in mind die necessity of such an approach all the time.

Chapter XIII

THE COMMISSION OF RAILWAY SAFETY

Historical

572. The origin of the Commission ol Railway Safety (hereinafter
referred to as the Commission) lay in the appointment of Consulting Engi¬
neers under the Government of India with the object of exercising effective
control over the construction and operation of the first railways in India,
which were owned and managed by private companies incorporated in
the United Kingdom. Later, when the Government undertook the con¬
struction of railways, the Consulting Engineers were designated as Govern¬
ment Inspectors. In 1883, their position was statutorily recognised. Twenty
years later, the Government Inspectorate was placed under the Railway
Board, which was established in 1903.

573. Section 181(3) of the Government of India Act, 1935, provided
that “functions for securing the safety both of the members of public and
of persons operating the railways, including holding of inquiries into the
causes of accidents” should be entrusted to officers independent; of the
Federal Railway Authority. This was the genesis of the independent Com
mission which we have today.

574. The Pacific Locomotive Committee headed by Lt. Col, A.H.L,
Mount, then Chief Inspecting Officer, British Railways, also suggested
that steps should he taken to end the subordination of the Railway Ins¬
pectorate to the Railway Board. In para 210 of their report of 1939 the
Committee observed as follows:-—

“We understand that, under the Government of India Act, 1935,
it is contemplated that the Inspectorate will be separated from the
control of the Railway Board. This is very desirable, in so far as it
will eradicate , the present anomaly of the Board being the Inspect
ing as well as the executive authority. We were informed that the
Board fully appreciate the position, and would welcome the change,
although it appears that, in practice, Government Inspectors have
generally retained their freedom of judgement.”

575. The principle of separation from the Railway Board was en¬
dorsed by the Central Legislature which recommended that “Senior
Government Inspectors of Railways shotdd be placed under the adminis¬
trative control of some authority of the Government of India other than
the Railway Board.” Accordingly, the Railway Inspectorate, since desig¬
nated as the Commission of Railway Safety, was placed under the adminis¬
trative control of the Department of Communications in May, 1941, and
subsequently under the Department of Posts and Air, and the Ministry
of Transport and Communications successively. Since May, 1967, the ad¬
ministrative control over the Commission is exercised by the Ministry of
Tourism and Civil Aviation.

Functions

576. Under the law, the Railway Board are the Safety Controlling
Authority. The responsibility for safe operation of railways thus rests with

141

140

the railway administration. That responsibility cannot be shared by olhcers
of the Commission whose duties are set out in the paragraphs that follow.

577. The functions of the Commission are carried out by a small
cadre of officers consisting of the Commissioner of Railway Safety (herein¬
after referred to as Commissioner) and five circle officers known as Addi¬
tional Commissioners of Railway Safety (hereinafter referred to as Addi¬
tional Commissioners). The Commissioner as head of the organisation is
the principal technical adviser to the Government in all matters pertain¬
ing to the Commission. He directs the technical activities of the organisa¬
tion, and supervises the work of the Additional Commissioners under his
administrative control. He is responsible for advising the controlling
Ministry in matters relating to recruitment, transfer and promotion of
officers and staff, budget and expenditure. His duties may be summed up
as under: -—

(a) Issues, directives and instructions for the guidance of Additional
Commissioners in respect of the following: —

(i) Holding of statutory inquiries into serious accidents includ¬
ing those not covered by statutory instructions or notifica¬
tions;

(ii) Inspections prior to opening of all newly constructed lines
including doublings and electrification of existing lines;

(iii) Running of new types of locomotives and rolling stock.

(b) Communicates his views to the Railway Board, as necessary
on: —

(i) Designs, standards, specifications and procedure for construc¬
tion, working and maintenance of assets in all branches of
railway engineering and operation including Civil, Mecha
meal. Electrical and Signal Engineering, electric traction,
working of trains, etc,

(ii) Modification, interpretation and enforcement of General and
Subsidiary Rules and the various Technical and Operating
Manuals of the Railways.

(iii) Procedure for holding of inquiries into accidents and inspec
tion of new lines.

(i) To scrutinise inspection reports received from the Additional
Commissioners on the open lines of Government Railways
and forward important items relating to safety contained
therein to the Railway Board for necessary action.

(ii) To forward the inspection reports of Additional Commis¬
sioners on company-managed railways with his recommenda¬
tions to the Railway Board.

(iii) To scrutinize the accident reports submitted by the Addi¬
tional Commissioners on serious accidents and advise the
Government with respect to the acceptance or otherwise of
their findings and make his own recommendations for the
prevention of similar accidents.

ii6

578. His field duties consist of routine inspection of sections of Rail¬
ways, visits to circle offices and headquarters of the zonal Railways. At times,
the Commissioner, if he thinks it necessary, holds an inquiry into a serious
accident himself.

579. The functions of the Additional Commissioners derive their
authority from section 4(‘2)(a) and (b) of the Indian Railways Act, 1890.
These are :

(i) To inspect new lines with a view to determining whether they
are fit for public carriage of passengers and to report thereon
to the Central Government.

(ii) To make such periodical or other inspections of any railway
or of rolling stock used thereon as the Central Government may
direct.

(iii) To make inquiries into train accidents on railways.

(iv) To perform other duties as are enjoined upon him by the Act
or any other enactment for the time being in force relating to
railways.

580. The duties under item (i) above have been further amplified in
sections 18 to 21, and 23 and 24 of the Indian Railways Act as follows:—

(i) To inspect a railway or a part of it and submit a detailed ins¬
pection report to the Central Government.

(ii) To sanction the execution of all works including new works
affecting safely of running lines.

(iii) To report to the Centra] Government any condition which may
endanger the safety of the travelling public and make recom¬
mendations.

(iv) To inspect a closed railway prior to reopening.

(v) To sanction the opening of new railway lines on behalf of the
Central Government.

581. We have been assured by the Commissioner that full coopera¬
tion and assistance of every kind is given by the Railway administration
to him and the Additional Commissioners and matters which require their
attention arc d: v c»'««ed by the Commissioner with, the Chairman, Mem¬
bers and Directors of the Railway Board.

Organisation

582. The functions set out above are carried out by the Commissioner
of Railway Safety and five Additional Commissioners. The Commissioner
is generally assisted by a Deputy Commissioner who also acts as a leave
reserve officer.

583. Till 1941 when the Inspectorate was separated from the Railway
Board, there was no post of Commissioner of Railway Safety. In 1941, the
post of Chief Government Inspector of Railways, now designated as Com¬
missioner of Railway Safety, was created to enable the Ministry under
which the Inspectorate (designated now as Commission of Railway Safety)
was placed to exercise effective technical control,

isk <

584. The jurisdiction, of each Additional Commissioner at present is
given below: —

Oirde

Nor! 1 un'ii (Jirr l.e, Luckn (> w
NurLh Eastoi-ii Circle, Calcutta
South Eastern < 'irolo, < -& I on lift

Southern Circle, Bangalore
Western Circle, Bombay

Railway (a)

Northern Railway

Eastern and North Eastern Railway si

South Eastern and Northeast Frontier Rail¬
ways.

Southern and South Central .Railways.
Central and Western Railways.

585. Each Additional (Commissioner also exercises jurisdiction over
company-managed railways. Port Trust railways and District Board lines
located within his circle. Such lines constitute about 1.7 per cent of the
aggregate route kilometrage of Indian Railways.

580. It may be mentioned that prior to February, I960, there were
only four circles—Northern, Eastern, Southern and Western. On account
of development works under the Five-Year Plans, the workload increased
very considerably, especially in the then Eastern Circle which included Lhe
Eastern, the South Eastern and the Northeast Frontier Railways. An addi¬
tional circle, known as the Construction Circle, was set up in Calcutta on
1st March, 1900, to deal with major projects on the three Railways. These
major projects consisted of electrification on the Eastern and the South
Eastern Railways and the new Dandakavanya-BoIangir-K.il iburu railway
construction. Sanction for continuance of this additional circle was obtain
ed year after year. This position was reviewed during- the year 1967-08
and it was decided in April, 1968, to revise the jurisdiction of the live
circles as indicated above. Even so the fifth circle is still temporary.

ibitjuiries into accidents

587. One of the important functions of the Additional Commissioners
is to inquire into serious accidents. The rules for inquiries into accidents
are contained in Railway Board notification No. 59-TTV/42/1 dated 11th
April, 1966, entitled the “Railway (Notices of and Inquiries into Accidents)
Rules, 1966’. The relevant portions of para 8 of the rules relating to
the inquiries into serious accidents are reproduced below: —

“8(2) Every accident to a train carrying passengers which is attend¬
ed with loss of human life or grievous hurt as defined in the
Indian Penal Code to a person or persons in the train or with
serious damage to railway property of the value exceeding
Rs. 50,000/- and any other accident which in the opinion of
Lhe Commissioner of Railway Safety or the Additional Com
missioner of Railway Safety requires the holding of an inquiry
shall Ire deemed to be an accident of such as serious nature as to
require the holding of an Inquiry.

8(3) Where the Commissioner of Railway Safety considers the hold¬
ing of an inquiry into an accident necessary, he may either hold
the inquiry himself or direct the Additional Commissioner of
Railway Safety to do so.”

“Explanation —The inquiry by the Additional Commisdoii^i of
Railway Safety shall be obligatory only in those caves where
the passengers killed or grievously hurt were travelling in the

148

train. 11' a person travelling on the loot-board or roof of a pas¬
senger train is killed or grievously hurt or if a person is 1 run
over at a level crossing or elsewhere on the railway track an
inquiry by the Additional Commissioner of Railway Safety
shall not be obligatory. Similarly, if in a collision between a
road vehicle and a passenger train at a level crossing, no pas¬
senger in the train is killed or grievously hurt the Additional
Commissioner of Railway Safety shall not be obliged to hold
an inquiry. For the purpose of this rule, workmen’s trains or
ballast trains carrying workmen shall also be treated as pas¬
senger trains and in the event of a workman getting killed or
grievously hurt as a result of an accident to the train, an inquiry
by the Additional Commissioner of Railway Safety shall be obli¬
gatory.”

588. The holding of an inquiry by the Additional Commissioner iulo
an accident of the description specified in para 8(2) of the rules is thus obli¬
gatory. Other accidents not deemed to be of serious nature and averted
collisions, breaches of block regulations, signals passed at danger, attempt¬
ed train-wrecking, collision’s at level crossings, etc., are inquired into oe-
partmentally. The rules also provide that if the Additional Commissioner,
due to pre-occupation or otherwise, is unable to hold an inquiry into a
serious accident, he may request the Railway administration to arrange
for a departmental inquiry. When he receives the proceedings of the in¬
quiry held by a committee of railway officers, lie is required to prepare a
report if he agrees with the findings. If on the other hand he differs from
the conclusions reached in the departmental inquiry he may if he considers
it necessary take additional evidence, cany out tests and prepare his re¬
port. We consider that in cases where lie agrees with the findings of the
departmental inquiry, it should lie sufficient if he expresses his views on
the findings and the recommendations made instead of preparing his own
report.

589. The procedure lot preparation and submission of reports of
statutory inquiries into accidents by the Additional Commissioner of
Railway Safety is contained in an office memorandum of the Commissioner
dated May, 1948. The time schedule for submission of reports—prelimi¬
nary, draft and final—was decided upon at a meeting held in April, 1950,
by the Railway Board with the Secretary to the Government of India in
the Ministry of Communications. The minutes of this meeting specify the
following schedule: —

Date of Accident ... ... • •• A

Preliminary Report and provisional findings A+ 8
Draft Report ... ... .. • • A + 28

The preliminary and draft reports are confidential documents

590. According to the existing procedure, the Additional Commissioner
sends copies of his draft report to the Railway administration, the other
Additional Commissioners, the Commissioner and the Railway Board.
The Railway administration sends its remarks on the draft report to the
Railway Board, the Commissioner of Railway Safety, and the Additional
Commissioner concerned. The other Additional Commissioners also send
their comments on the draft report to the Commissioner and to the Addi¬
tional Commissioner concerned. Thereafter the Commissioner prepares a

149

note on the Additional Commissioner's report taking into consideration
the Railway administration’s and the other Additional Commissioners’ re¬
marks and sends it to the Railway Board with his recommendations. The
Railway Board thereupon examine (he report with the Railway adminis¬
tration’s remarks and the Commissioner’s note and record their views. It
is thereafter that the final report is prepared. The report is required to be
finalised within 15 days of the receipt of the Railway Board’s views. We
shall revert to this procedure later.

591. The main sections of the Additional Commissioner’s report of
an inquiry into an accident are : (a) Introductory, (b) Relief measures
(c) Site features, (d) Tests carried out, (e) Summary of evidence, (f) Dis¬
cussion of evidence and (g) Conclusions. Recommendations and observa¬
tions relevant io the inquiry form an annexute to the report.

592. Train accidents other than those in which inquiry by the Addi¬
tional Commissioner is obligatory are inquired into departmenially by
railway officers. The evidence shows that bv and large thorough inquiries
arc made by committees oi railway officers and except on a few occasions,
the Additional Commissioners do not find it necessary to make references
to the Railways on such departmental inquiry proceedings. The more im¬
portant accidents falling under section 85 of the Indian Railways Act which
are inquired into by the Railways are summarised in the Commissioner's
annual Report on the Working of the Commission of Railway Safety. In
Appendix B of the Commissioner’s Report for the year 1966-67, 44 such
items enumerating brief details of the accidents, cause and responsibility
and suggestions for safeguards are enumerated.

593. During the five year period, 19(i3-(i4 to 1967-68, 180 significant
recommendations were made by the Commission as a result of inquiries
into serious accidents. These recommendations have, by and large, been
accepted by the Railway Board and the Railway Administrations advised
accordingly. A small percentage of these is under correspondence between
the Commissioner and the Railway Board.

594. We discuss later in this chapter the question of strengthening the
cadre of the Additional Commissioners. Here we would like to say that
there are some serious accidents which are not required to be inquired
into by the Additional Commissioner under the present Rules even though
the consequences in some of them are serious. The Kunzru Committee
had recommended that tire Additional Commissioners should also inquire
into some important: train accidents in which an inquiry is not obligatory
under the Rules. We too are of the view that the Additional Com¬
missioners should inquire into certain types of accidents which are not
at present provided for under the rules. We have in mind, in particular,
two types namely (i) accidents at manned level crossings involving colli¬
sions between trains—whether goods or passenger—and road vehicles in
which there is loss of life or grievous injury to passengers in the road
vehicles and (ii) collisions and derailments of goods trains in which there
is loss of life or grievous injury to any person.

595. Besides these inquiries an Additional Commissioner must make
such other inquiries into serious accidents as the Commissioner considers
necessary for him to inquire into. As for the Commissioner himself, he may
if he considers fit or if his Minister so requires him, make inquiries into
accidents of a serious nature. We might mention that,in some recent cases
of serious accidents the Commissioner held inquiries personally.

150

596. The part of the inquiry report of the Additional Commissioner
which contains recommendations is highly important from the point of
view of remedial action and prevention of recurrence of similar accidents.
We, therefore, consider that the recommendations made by the Additional
Commissioners should be incorporated as an integral part of the report
under the heading “Remarks and Recommendations” instead of being
an annexure to the Report. We also suggest that line plans showing essen¬
tial features and photographs where necessary should he appended to such
reports.

597. We would like to observe here thaL a period of 60 days from the
date of accident should ordinarily suffice for sending the final report Its
the Commissioner to the Railway Board and the Railway administration.
With the changes in procedure which we suggest elsewhere wc consider
that, this period should be adequate for finalising the report. This would
not only result in significant reduction in the time taken in finalising the
report but would be conducive to building up of public confidence in
the organisation of the Commission of Railway Safety.

Inspections

598. Upto the year 1953, the annual inspections of the Indian Govern¬
ment Railways were carried out by the Government Inspectors of Railways
(now called the Additional Commissioners of Railway Safety). In 1953, the
Railway Board, with the concurrence of the Ministry of Transport and
Communications, decided that these inspections should be discontinued as
the General Managers were responsible for assuring the safety of operation
on their respective Railways. It was, however, left open to the Government
Inspectors to carry out inspections for I heir own purposes or arrange ad
hoc visits to study any particular aspect of railway working with which
they may desire to make themselves familiar. The Government Inspectors
were assured that for this purpose, all necessary facilities would be given
by the Railway administration. The Ministry of Transport and Communi¬
cation, on their side, reiterated these instructions to the Government In¬
spectors and in these instructions required the latter to carry out annually
tin inspection of 20 per rent of the route mileage of each Government-
owned railway, fitting their inspections, as far as possible, with the inspec¬
tions of the General Manager with his heads of departments.

599. The Additional Commissioners of Railway Safety are at present
thus responsible for the detailed inspection of company-managed railways
only. In the case of Government Railways, the General Managers are res
ponsible for such inspections but the Additional Commissioners accompany
them wherever it is possible to do so.

600. Inspection reports of company-managed railways are sent: by Addi¬
tional Commissioners of Railway Safety direct to the Railway Board and
Railwav administrations concerned for necessary action. A copy of these
inspection reports is also endorsed to the Commissioner. Inspection reports
of Government Railways, however, are sent to the Commissioner, who in
turn, forwards extracts from these reports to the Railwav Board for further
action.

601. The Kunzru Committee had expressed dissatisfaction on the ex¬
tent of inspections carried out by the Additional Commissioners. The ex
:ent to which the Additional Commissioners of Railway Safety are able to
:arry out inspections is shown in the annual report of the Commission of

151

Railway Safety. We find that the General Manager and Heads ot depart
ments whom the Additional Commissioner accompanies as convenient to
him generally carry out their inspections during the period November to
March, file Railways are keen to adhere to the programme and targets
of construction of new lines, doubling and electrification before the end
of the financial year and with that objective, require the Additional Com¬
missioners to inspect and authorise the opening of lines for the passcngct
traffic during the same period. Furthermore, should one or more serious
accidents occur during the said period, or if an Additional Commissioner
were to hold charge of another circle in addition to his own, his pro¬
gramme of annual inspections gets affected and the Additional Commissioner
is unable to comply with the annual quantum of inspections of open lines.
It therefore seems to us that if the Additional Commissioners are to carry
out all the inspections expected of them, it would be necessary to streng¬
then their cadre. We shall advert to this aspect later.

602. The Kunzru Committee had also expressed the opinion that in
their inspection reports, the Additional Commissioners seldom cover safely
aspects. They had expressed the view that a check should be exercised on
the quality and adequacy of inspections carried out by the Additional
Commissioners. From the safety point of view, inspections by Additional
Commissioners of Railway Safety are no doubt advantageous! We are in
formed that the Commissioner lias already taken steps to see that the
inspections when made are thorough. He ensures this through personal
discussions with the Additional Commissioners during his visits to the
latter’s headquarters.

603. We also notice that in pursuance of the recommendations ot the
Kunzru Committee, the conditions in respect of maintenance of assets on
the Railways are embodied in a separate chapter headed “General Appre¬
ciation of the Conditions of Safety in Operation and Maintenance of Rail¬
ways” in the Commissioner’s annual report. While we see no objection, to
the inclusion of a separate chapter on the subject in the Commissioner’s
annual report, it must be remembered that the main purpose of the inspec¬
tions is to apprise the Railways of the defects found so that they are
remedied as soon as possible. The annual report of the Commissioner
should, in our view, deal with this aspect only broadly.

604. We might mention that the procedure whereby the reports of
inspections! by Additional Commissioners which are carried out in the
company of administrative and divisional officers of the Railways and are
forwarded to the Commissioner is, in our view, a defective procedure. We
suggest that these reports should be forwarded directly to the Railways
concerned and copies may be sent to the Commissioner and the Railway
Board. This would facilitate immediate attention by the Railway adminis¬
tration to the defects noticed. According to the present procedure it takes
several weeks before the inspection notes of the Additional Commissioner
reach the Railway administration through the Commissioner and the Rail¬
way Board.

605. The Kunzru Committee had recommended that the Additional
Commissioners should he relieved of the functions of certifying the fitness
of new locomotives and rolling stock and of sanctioning the movement of
over-dimensional consignments. The Government were, however, unable
to accept this recommendation on the grounds that the existing practice
serves as a double dvr'; on the fitness of new locomotives and rolling
stock before placing them on line and on the movement of over-dimen¬
sional consignments. The Government, therefore, decided to maintairt the

152

status quo. It seems that these duties have been assigned to the Additional
Commissioner* m -i-nc as a i additional check in the interest of safety and
we, therefore, think that the Additional Commissioner should continue
to perform them.

Independence of the Commission

f>06. We have already indicated that up to 1941, the Commission or
the Inspectorate as it was then called was under the Railway Board. It
was, however, felt that the Commission should be independent of the Rail¬
way Board and accordingly in 1941, it was taken away from the Railway
Board and placed under another department. Since then the Commission
has remained under one Ministry or the other but not under the Railway
Ministry.

607. On the basis of evidence tendered before it, the Kunzru Com¬
mittee had observed that there was a great deal to be said in favour of the
Railway Inspectorate working under the Railway Minister. They had,
however, refrained from making a positive recommendation and had ex¬
pressed the hope that the matter would be considered further by Parlia¬
ment.

608. We have given this matter our earnest consideration and have
come to the conclusion that it would be better if the Commission continues
to be attached to a Ministry other than the Railway Ministry. We may point
out that in the United Kingdom the corresponding authority is under the
Ministry of Transport which is also the controlling Ministry for the
railways. The Railways Board in the United Kingdom, unlike our Rail¬
way Board, is however, a statutory corporation and the Ministry of Trans¬
port has powers to give only general directions to the Railways Board.
The result of such a situation in the United Kingdom is that the Chief
Inspecting Officer (the counterpart of the Commissioner here) is the techni¬
cal adviser to the Ministry of Transport whereas the Railways Board is
not directly the adviser to the Ministry of Transport in railway matters.
In India, the position is different; the Railway Board is the secretariat of
the Railway Ministry and is the adviser to the Railway Minister in all
matters partaining to Railway administration. In these circumstances it
seems to us definitely advantageous that the Commission of Railway Safety
remains attached to another Ministry so that its position as a body inde¬
pendent of the Railway Board would be, and remain, quite clear to the
public. We might point out that in our discussions with the Railway-
Board' as also the Ministry of Tourism and Civil Aviation under whose
administrative control the Commission functions at present, this view found
support with both.

609. We have noted that during the past nearly three decades now,
the Commission has been attached to different Ministries from time to
time depending upon the reshuffling of portfolios and jurisdiction of
various Ministries. This experience has not been a very happy one because
this has not given the Commission of Railway Safety a permanent
anchorage. Inevitably this has led to inadequate attention being given to
the affairs of the Commission by the Ministry to which it has been attached
for the time being. We recommend that from now on the Commission
should find a permanent location and that this should be with the Ministry
of Home Affairs. This may have the additional advantage of attaching the
Commission to a Ministry which enjoys high prestige. It will also help
in quicker solutions to the establishment and other problems associated
with individual members of the Commission as well as the Commission
as a whole.

153

610. What, in our view, is required to make the Commission, in elLeci,
independent is a change in the procedure of working of the Commission
and of the recruitment and status of its personnel. We have already set
out the present procedure in respect of the inquiries conducted by the
Additional Commissioners. So far as the preliminary report is concerned,
we see no objection to its being made as early as possible with provisional
findings. But we do feel that the manner in which the draft report is dealt
with robs it of objectivity and independence. The draft report of the Addi¬
tional Commissioner 1 , according to the present procedure, is subject to
remarks by the Railway administration concerned and by the Railway
Board in addition to its being noted upon by the Commissioner. It is only
thereafter that the final report emerges. We are of the view that this pro¬
cedure detracts from the independence of the Additional Commissioner
a great deal. In fact, the sending of the draft report to the other Additional
Commissioners for their comments also dilutes the responsibility of the
Additional Commissioner who must be fully responsible for his report. Such
a procedure, furthermore, results in unnecessary delays in finalising the
report. We are of the opinion that the responsibility for compiling the re¬
port of an accident inquiry should be placed squarely on the Additional
Commissioner concerned. All that is necessary is that the report should be
submitted to the Government through the Commissioner who may, if he
considers it fit, discuss it with he Additional Commissioner concerned. The
Additional Commissioner however need not alter any part of his report
if he feels that no alteration is called for. Thereafter the report should be
considered as finalised. It is this final report which should be sent by the
Commissioner to the controlling Ministry, the Railway administration con¬
cerned and the Railway Board. This procedure will go a long way in
establishing the independence of the Commission. It is to this final report
including the recommendations therein that the Railway Board and the
Railway administration should give their consideration. In case there is
any difference of opinion between the Commissioner and the Railway
Board or the Railway administration with respect to the conclusions or
the recommendations therein, the difference would have to be ironed out
in a conference between the Commissioner and the Railway Board in such
manner as they think fit.

fill. We would like to make it clear here that there is nothing im¬
proper in informal consultation between the Additional Commissioner and
the Railway administration during the time that he is conducting his in¬
quiries or preparing his report. The discretion however whether any con¬
sultations are necessary should rest with the Additional Commissioner.

612. Linked with this is the issue of the making of rules for inquiries
into accidents by the Additional Commissioner. At present these rules are
made by the Railway Board. We have been given to understand that before
these rules were revised in 1966, close consultation with the Ministry of
Tourism and Civil Aviation and also the Commission of Railway Safely
took place and their views were duly considered before the Railway Board
revised the rules. Nonetheless, we do not see the merit of an arrangement
whereby the rules for conducting of inquiries by the Additional Commission¬
ers of Railway Safety are made by the Ministry of Railways. It would be
conducive to the strengthening of public confidence in the independence
of the Commission if the rules in this behalf are framed by the Ministry
to which the Commission is attached. This Ministry may, when necessary
consult the Railway Board while framing such rules. We would suggest
that from now on whenever any changes in the present rules are required
Ij/J(N)3M’f Railway—12

i 54

these should be considered and issued by the Ministry controlling tite
Commission. Furthermore, any directions as to the work of the Commis¬
sion should be issued by that Ministry and not by the Railway Board.

613. Yet another question which has relevance to the independence
oi the Commission from the viewpoint of public conliilence is whether
the public including trade unions and the press should be permitted to
be present when the Additional Commissioner- makes his inquiry into an
accident. According to the present procedure the public and the press
are excluded from the inquiries conducted by the Additional Commission¬
ers and the reports made by them are generally not published soon alter
they are finalised. We are of the opinion that it would inspire public, con
iidenc.e in the independence of the Additional Commissioners if the
public including trade unions and the press are admitted to the inquiries,
they would, of course, have no say in the inquiry itself but may be pre¬
sent only as observers. It may be added that the admission of the public
including trade unions and the Press should be at the stage when the
Additional Commissioner takes oral evidence of the witnesses.

614. Public confidence would, we feel, be further enhanced il the
reports of the Additional Commissioners arc published soon after they
are finalised except where it is decided to launch a prosecution. All that
is necessary is that the report that is intended for publication should
be available to the press soon after its finalisation. We understand that
such published reports are already put out by the Government as priced
publications and this practice should continue.

615. In advocating the publication of inquiry reports, one exception
must be made namely, in respect of accidents where a prosecution is to
be launched. We had discussed the question of prosecution ol railway
servants in part I of our Report. We had suggested that an amendment
to section 101 of the Indian Railways Act may be necessary to ensure that
no railway servant is prosecuted without the sanction of the authority
competent to appoint him or a higher authority. We had also added that
in most accident cases departmental action would meet the ends ol justice
and prosecution of railway stall ought to be necessary only in a compara¬
tively few cases of a serious nature. We find that the Government have
already accepted this recommendation. If action on the above lines is
taken it would be relatively easy for the Railway administration to decide
immediately after the report of t'hc Additional Commissioner is available
whether or not the prosecution of a railway servant is to be launched
When prosecution of someone other than a tail way servant is to be
launched, the police authorities will have to be consulted. If prosecution
is decided upon the publication of the report may be withheld. But since
in most cases prosecution may not be necessary most of the reports can
be published soon after they are finalised. Such a step, we reiterate, will
result in the public reposing greater confidence in the inquiries of the
Commission.

616. Finallv, i«> ensure the independence ol the Commission and its
officers, it: is necessary that the entrants to the Commission understand
clearly that once they opt for the Commission and are selected, they would
not revert to Railway services. They should expect' promotion within the
Commission itself. At the same time, the Ministry of Railways should haw-
no further say in regard to their career. We were told during the course
of evidence that an Additional Commissioner whose post was upgraded

was not given the higher grade on the plea that die Ministry ot Tourism
and Civil Aviation wanted the Railway Board to certify that' he was ht to
become a Chief Engineer on the Railways. This, to our mind, is entirely
wrong and undermines the independence of the officers of the Commission.
Once a railway officer has been selected for the Commission, there should
be no question of the controlling Ministry wanting his witness to be
certified by the Railway Board for the purpose of getting the higher grade
in the Commission or for any other purpose.

Commissions of Inquiry

617. The question of public confidence in the independence of the
Commission is closely linked with the demands which are made time and
again in Parliament and the Press for a ‘judicial inquiry’ whenever a
serious accident takes place. We concede that at present a Commission of
Inquiry presided over by a High Court Judge commands more confidence
in the public mind than an inquiry by an Addititional Commissioner.
Nonetheless, we expect that if the steps that we have suggested for
securing the independence of the Commission are taken, an inquiry by the
Additional Commissioner will inspire sufficient public confidence. We may
mention that in the United Kingdom there had been no judicial inquiry
into a railway accident for almost 90 years until the inquiry into the
Hixon Level Crossing accident in January, 1968. We feel that with the
steps that we have suggested, a judicial inquiry on the Indian Railways too
would, in course of time, become a rare thing. It is significant that though
a number of Commissions of Inquiry inquired into railway accidents in
ibis country, in two of the three cases where such Commissions of Inquiry
were appointed after the Additional Commissioners had completed their
inquiries, these inquiries endorsed the conclusions arrived at by the Addi
tional Commissioners. In one case the Commission of Inquiry came to con¬
ditions difTcicu; t om litre of the Additional Commissioner but in that
case eventually the Government accepted the findings of the Additional
Commissioner and disagreed with the findings of the Commission of
Inquiry. It may be mentioned that an inquiry under the Commissions of
Inquiry Act is a fact-finding inquiry and like the conclusions of the Addir
tional Commissioner, the conclusions of the Commission of Inquiry are
not binding on the Government. Furthermore, an inquiry by an Additional
Commissioner takes less time, is less expensive and is conducted by an
officer who is conversant with railway working and is, therefore, at least
in as good a position as a Commission of Inquiry in reaching a finding.
Personnel of the Commission and their status

618. We have already referred to the fact that the Commission at
present consists of the Commissioner and five Additional Commissioners.
A Deputy Commissioner assists the Commissioner ‘generally in his work
and also acts as leave reserve officer. Immediately after the reorganisation
of the Railways in 1951-52 there were only six zonal Railways. The
number of Railways has since gone up to nine and as a result each of the
Additional Commissioners has generally two Railways to deal with except
lor the Additional Commissioner at Lucknow who deals with only one
Railway namely the Northern Railway which incidentally is the biggest
of all the zonal Railways.

619. We have already indicated that the Additional Commissioners of
Railway Safety are unable to undertake the inspections required of them
fully-. The Kuuzru Committee also had occasion to criticise the Additional
Commissioners for not carrying out the inspections as required. Particu¬
larly, where one Additional Commissioner has to deal with two Railways,

I. MCNiS Mof Railway—T-(a)

1*56

it becomes difficult for him to cart) out the inspections required in addi
tion to his other duties. We have already alluded to the difficulties ex¬
perienced by the Additional Commissioners in lilting their programme of
inspections with the General Managers! Since such inspections on most
Railways are concentrated in more or less the same period. We have also
suggested in the earlier paras that in addition to accidents into which in¬
quires are obligatory, certain other accidents should also be inquired into
by the Additional Commissioners. In order that the Additional Commis¬
sioners may carry out their work satisfactorily, it seems to us necessary that
the strength of the Commission should be augmented by increasing the
number of Additional Commissioners front five to seven. The jurisdiction
of the various circles is a matter to be determined by the Commissioner in
consultation with the Ministries concerned. Meanwhile, we suggest that
the fifth circle referred to in para 586 which has hitherto been continuing
on a temporary basis should be made permanent.

620. Recruitment to the post of Additional Commsisioner is at present
confined to civil engineers on t'he Railways. This narrows down the held
of choice considerably and is, to some extent, responsible for the shortage
of suitable volunteers. It would be, in our view, more advantageous to have
a broader base of recruitment to the Commission. It may be mentioned
that in their inquiries, the Additional Commissioners have to deal with
problems which relate not only to civil engineering but also other aspects
namely, mechanical, operating and signal engineering. It, therefore, seems
to us that the field for recruitment to the Commission should be widened
and there should be no bar to officers from other departments of the
Railways being selected. We would of course like ro add that the selection
of officers should be in consultation with the Commissioner and no one
should be taken into the Commission except on the recommendation of the
Commissioner,

621. In order to attract suitable volunteers to the organisation, it is
also necessary to build up a pyramid cadre so that the entrants can look
forward to promotion in the same way as on the Railways. At present the
five Additional Commissioners are all in the grade of Rs. 2,000—2,500.
This grade should continue for five out of the seven Additional Commis¬
sioners which we have recommended for the reorganised set'-up. The re¬
maining two Additional Commissioners may be given a slightly lower
grade namely Rs. 1,800—2,000 and (he Deputy Commissioner may be in the
grade Rs. 1,600—1,800. This would provide graded service in the organi¬
sation and should be an incentive to the railway officers to volunteer for
service in the Commission. The recruitment' should invariably be Co the
lowest of these grades and to none else. Volunteers should be invited from
among officers in the Junior Administrative Grade. In the first selection
consequent on the expansion of the department, this may, of course, have
to be relaxed.

622. Further, once an officer has been selected for the Commission he
should begin at the lowest grade available in the Commission, namely
Rs. 1,600—1,800 and may from there go on to the higher grades. Their
seniority should be counted from t'he date of service in the Commission
itself so that an officer who joins the Commission earlier should be con
sidered senior for promotion in the Commission to an officer who joins
later, even though the latter may have longer service on the Railways.
After an officer has joined the Commission there should be no question
of any further selection as far as grades up to Rs. 2,000—2,500 are con¬
cerned. Promotions to these grades should get by seniority. The selection
should be only for the post of Commissioner. This selection, too, should

157

be confined to the officers of the Commission and no outside railway
officer should be imported for this purpose. We emphasized this not’ only
so that the field of choice becomes wider and suitable and competent
officers are willing to volunteer but also because in this way t’he independ
enro of the officers of the Commission would be ensured.

623. The Kunzru Committee had recommended that the Commission¬
er of Railway Safety should have the same status and rank as that of a
General Manager with an appropriate secretarial status. While agreeing
that the Commissioner of Railway Safety should have the same status and
rank as that of a General Manager, the Government did not agree to
confer the appropriate secretariat status on the grounds that secretarial
status is required only to perform certain functions on behalf of the Presi¬
dent and that it was unnecessary to confer such status on the Commissioner
of Railway Safety. We are afraid the recommendation seems to have been
misunderstood by the Government. We are convinced that the Commission¬
er should have the appropriate secretariat status which in this case
would be that of an Additional Secretary to the Government of India.
Such a status would enable the Commissioner to have direct access to
the Minister. As principal technical adviser to the Government' in all
matters concerning the Commission, he would thus be able to discharge
his duties more effectively particularly where t’here are differences of opi¬
nion on any matters relating to safety between the Railway Board and tne
Commissioner. The differences, as already stated, should be resolved as far
as possible by conference between the Commissioner and the Railway
Board. If, however, the differences cannot be resolved at that level, the
matter may have to be settled between the two Ministers concerned. For
that it is essential that’ the Commissioner should be able to place his point
of view before his Minister and to advise him appropriately and it is to
enable him to do so effectively that' we advocate conferring of the appro
priate secretariat status.

624. We would also like to mention here that even though the Gov¬
ernment had agreed that the Commissioner would have the rank and
status of a General Manager, if is a matter of regret that when the salary
of the General Managers was raised in September, 1965, the salary of the
Commissioner was not correspondingly raised, as it should have been, at
the same time. We recommend that t'his should be rectified without delay.

Location

625. The office of the Commissioner which was at Simla ever since
May, 1941, was shifted to Meerut in October, 1963. From Meerut, the
office was transferred to Lucknow in 1966 on the suggestion made by the
Kunzru Committee in para 239(ii) of Part II of their Report. It was
stated—

“We understand that it was originally intended that the Inspecto¬
rate should have its headquarters with the Communications Depart¬
ment and the Railway Board. The Inspectorate had, however, to
be located at Simla and continues to function from there. Its trans¬
fer to New Delhi is not probably feasible for want of accommoda¬
tion. We understand that the headquarters of the Research, Designs
and Standards Organisation is to be located at Lucknow and we
recommend that the headquarters of the Commission of Railway
Safety should also be moved to Lucknow which, we consider, to be
the best alternative to New Delhi.”

158

626. The Government accepted this recommendation and the office
was transferred to Lucknow. At Lucknow, the office is housed about 7
miles from the station in a rented residential house lacking the facilities
of an office.

627. We have been informed that a decision has since been taken b\
the Government to locate the office of the Commissioner at Secunderabad
and the South Central Railway has been requested to make available
accommodation for his office to the extent possible.

628. As for the circle offices of the Additional Commissioners, two
are located at Calcutta, the third at Bombay, the fourth at Bangalore
and the fifth at Lucknow. Thus while two of them are not at the head
quarters of the zonal Railways, three are at the headquarters of the zonal
Railways.

629. While we appreciate the considerations that led the Commission
er of Railway Safety to suggest a shift of the headquarters of the Cominis
sion to Secunderabad, it appears to us desirable that the offices of the
Commissioner should be located at New Delhi. We may add that accord¬
ing to the Kunzru Committee too, the best place for the headquarters ol
the Commission was New Delhi. They, however, recommended Lucknow
as the next best alternative because they thought it may not: be feasible to
find accommodation at New Delhi. To us, however, it seems that it should
not be impossible for the Government to find accommodation for the
office of the Commissioner in New Delhi.

680. The headquarters of the Additional Commissioners should be¬
at the headquarters of the Zonal Railways except where the jurisdiction
of the Additional Commissioner extended to more than one Railway in
which case it should be at the headquarters of one or the other zonal
Railway. This would provide liaison between the Railway administra¬
tions and the Commission which is to their mutual advantage, ft must lie
appreciated that an Additional Commissioner can only be from one de¬
partment of the Railways while in inquiries and even in other duties he
may have to take the assistance of the other departments. Adequate office
accommodation for them should be arranged on a priority* basis particu¬
larly since the entire office establishment of these officers consists of one
officer and a few men.

Annual Report

631. The recommendation of the Kunzru Committee that the annual
report on the working of the Railway Inspectorate should be placed before
Parliament* had been accepted by the Government. We find that since
1963-64, the annual reports are being placed on the tables of both Houses
of Parliament. This, in our opinion, is a salutary recommendation and
should continue to be followed so that t'he Commission inspires the con
fidence of the public and Parliament,

Chapter XIV

THE RESEARCH, DESIGNS AND STANDARDS ORGANISATION
AND ITS FUTURE ROLE

632. In Part I of our Repori, we had referred to the growth of the
Research, Designs and Standards Organisation during the five years follow¬
ing the Kunzru Committee Report and the good work which had been
done by it during those years.

633. Genesis —It will be of interest to review the circumstances under
which this highly important and increasingly useful organisation develop¬
ed into its present form. The need for achieving a substantial degree of
basic self-sufficiency in technology, design and know-how through applied
research by harnessing the discoveries made by basic research to useful
purposes was recognised fairly early, as far back as 1949. It was also realis
ed that the Railways in India should profit by the lessons learnt by the
railways abroad and by utilising the improvements in engineering and
operating practices which the scientific institutions and individuals had
made available to the Railways in the United Kingdom, Europe and
America. As a consequence, preliminary discussions were held between the
Railway Board, the Council of Scientific and Industrial Research and Sir
Harold Hartley who happened to be visiting India as Chairman of British
Airways. Sir Harold Hartley was an eminent scientist who had occupied,
with great distinction, a Research Chair at Oxford and had helped the
nationalised British Railways to set up what later on became the well-
known Research Centre at Derby. The preliminary discussions were pre¬
sided over by the Minister of Railways who was greatly impressed by the pic-
utre outlined at these talks. This helped in achieving further progress
along the lines that were eventually adopted. The opportunities provided
for follow-up meetings in the United Kingdom with Sir Harold Hartley,
the British Railways’ Executive, the Derby Research Centre, and the post¬
war research and development organisations being built up by the various
continental railways gave further fillip to the progress of the scheme.

634. The decision that the RDSO should grow and function inde¬
pendently of the Council of Scientific and Industrial Research, while
maintaining a close liaison and frequent interchange of ideas, was then
taken. At the same time it was agreed that the RDSO should also keep
itsel'f in constant touch with the manufacturers of railway rolling stock and
other equipment both in India and abroad, as well as with other operat¬
ing developments found advantageous by foreign railways who were com¬
peting seriously with road transport and were, thus, forced to keep them
selves on their toes and could not afford to ignore new techniques -and im
proved practices.

635. In the early 1950s, the basic outlines drawn up for the RDSO
highlighted three policy approaches. The first was to guard against placing
those directing and guiding its activities in a position where they could
not see the wood for the trees. This meant keeping the head of the organi
sat ion free of detracting functional preoccupation. The second was to
make adequate provision for the interchange of new ideas and technologi¬
cal and operating advances between the Indian and foreign railways bv

159

160

specifically providing lor the import and study of the latest foreign rail¬
way innovations where they were likely to benefit railway operations in
India. The third visualised that the RDSO would help the Railway to
link know-how with know-why and thus assist in full appreciation, gene¬
ral acceptance and adaptation of innovations after suitable trials under
Indian conditions before they were actually adopted.

636. The RDSO is thus an attempt on the part of the Indian Rail
ways to have an integrated organisation in which technologists and re¬
search workers in the various branches of railway engineering concerned
with the construction, maintenance and operation of the railways are
brought together with the object of achieving the maximum efficiency and
safety in train operation by coordinated research and development. The
role of the RDSO covers many facts of activities which may be briefiv
summarised thus: —

(i) to act as internal consultants to the Ministry of Railways and
the zonal Railways and help them in solving the technical prob¬
lems which may arise from time to time and in the modernisa¬
tion of railway operations;

(ii) to design and standardise the equipment used in the working

> of Railways with a view to achieving a high standard of effi

ciency and safety without sacrifice of economy in the use of
available resources;

(iii) to act as an observation post and a clearing house of know
ledge and experience gained by the railways in advanced count
ries and to adapt them for use on the Indian Railways; and

(iv) to undertake research and investigations for import substitu¬
tion and for the development of indigenous industrial capacity
for railway purposes.

637. The fulfilment of the role set out above involves processes of re¬
search and development on the one hand and of design, standardisation
and manufacture on the other with a continual and intimate link between
ihe two.

The present organisational structure

638. The RDSO, at present, consists of ten Directorates which dealt
with: —

(i) Research in Civil Engineering, Mechanical Engineering, Signal
and telecommunication and Traffic Transportation.

(ii) Civil Engineering, design and development.

(iii) Architecture.

(iv) Electrical Engineering, design and development.

(v) O.H.E.—traction and installation.

(vi) Carriage, design and development.

(vii) Wagon, design and development and inspection of rolling stock
and its components.

(viii) Motive power, design and development.

fix) Signal and telecommunication, design and development.

(x) Metallurgical and chemical engineering.

161

639. All these directorates and the various wings under them are locat¬
ed in Lucknow except for the Directorate of Metallurgical and chemical
engineering which functions partly from Chittaranjan. A few officers who
are in charge of liaison, inspection arid development work are attached to
the production units like the Chittaranjan Locomotive Works, Chittaran
jan, the Integral Coach Factory, Perambur, the Heavy Electricals, Bhopal,
the Tata Engineering and Locomotive Works, Jamshedpur and the Wheel
and Axle Plant, Durgapur.

Research

640. The research activities of the RDSO are mainly of an ‘applied’
character and are directed mainly at securing solutions of problems con
nected with designing and standardisation of railway equipment and mate¬
rial, repairs and maintenance methods, etc. To that end, the research func¬
tions of the RDSO are complementary to its activities concerned with
design development and techniques. The RDSO undertakes very little
hy way of fundamental research. We have been advised that whenever a
problem of basic research comes up during the course of ‘applied’ research
investigations, it is invariably remitted to one of the National Laboratories,
research institutions or an Institute of Technology in the country. During
the course of his evidence, the Director General, RDSO, told us that
efforts of the Organisation in farming out problems of basic research fo
the National laboratories, Institutes of Technology or research insti:utions
had not met with much success. Usually, such references evoked no res¬
ponse and eventually some of these problems had to be dropped after
awaiting for a long time, in some cases five years or so. The Director Gene¬
ra] went on to say that in its research functions, the Organisation was
equally keen to avoid duplication of effort and towards that end would
like to make use of the fundamental research facilities available in the
National laboratories and other institutions which were well equipped
for this purpose. But unless the response of the latter was earnest and pur
poseful, there was little hope of any progress in this direction.

641. We are inclined to agree with the Director General in his apprai¬
sal of the prevailing state of affairs. During the course of our deliberations,
we came across an instance in which on a relatively simple matter a refer¬
ence had been made to a research institution hy the RDSO. The RDSO
was engaged in the development of a suitable reflective material for use
on sighting boards. On certain aspects concerned with the development of
this material, a reference was made to the Council of Scientific and Indus-
uial Research, New Delhi, who coordinate development work in such
matters. The Council of Scientific and Industrial Research in turn asked
the Indian Institute of Technology, Kanpur, to study the problem and
to send a project proposal for investigation to the RDSO. The matter
remained under study by the Indian Institute of Technology', Kanpur,
who it appears prepared a project in about two years' time. The stage of
'development of the required material is yet nowhere near finality. This

case is illustrative of the halting manner in which the RDSO receive res
ponse from the research institutions.

642. While we are at one with the policy adopted that duplication of
effort should he avoided wherever possible and the problems of basic re¬
search should be farmed out to the National research institutions which
are not only excellently equipped but also the best suited for research in

Itfid

Mich problems, the 'need tor a purposeful dialogue and lor resoluteness
and promptitude in dealing with reference made by the RDSO and othet
similar institutions needs no emphasis. Wc would suggest that with a
view to obtaining better coordination with the fundamental research insti¬
tutions, laboratories and institutes of technology, the Director General,
RDSO, or his representative should be, in an ex-olficio capacity, on the
governing council of those ol the National laboratories and institutes on
whom the RDSO has to lean heaviily for the solution of its basic re¬
search problems. We understand that representatives of some of these insti¬
tutions and laboratories are members of the Central Board of Railway
Research. The proposal which we are making would thus be only a reci¬
procation of the arrangements already existing and would go a long way
in effecting close and continuous coordination and in evoking prompter
response from these laboratories and institutions in finding solutions to
problems framed out to them by the RDSO.

(»43. Relieved of fundamental research problems, the RDSO would
thus be in a position to concentrate on problems of applied research.
Applied research may refer to the evolving of ways and means to improve
the existing equipment and services or developing of new forms or systems.
In either of these objectives, the criteria which should dominate the
RDSO s outlook should be the significance of the problem and the ur¬
gency with which a solution has to be found. There are problmes which by
their very nature are such as would take a long time to work out. On the
other hand, there are problems which cry for an immediate solution. We
consider that in the matter of applied research, priority should, for some
time to come, he given to problems which are susceptible of at least a par¬
tial solution within a period of two to three years over the relative long-
term research projects. We find, for instance, that studies and research on
the question of vertical and lateral strength of track have been in progress
in the RDSO over the last five or six years and yet the study remains in¬
complete and may continue for some more time. Similarly, we find that
the question of track tolerances has been under consideration for several
years and has to be continued and expanded further. It is, in our view, in¬
expedient that such long term projects should impede the investigations
for finding solutions to current difficulties which raav before long become
emergencies.

trii. A conspicuous example of a problem needing immediate solu¬
tion is the designing and standardisation of signalling relays on which
modern signalling depends so much and which are essential for progress
ing such works. We find that at present numerous types of relays are being
imported from different countries. Their designs differ from each other
necessitating maintenance of large stocks of spares. A beginning has been
made by setting up a Relays Cell in the RDSO but we consider it ne¬
cessary to accelerate the pace considerably so that relays suitable for out
purpose and using indigenous materials to the maximum extent can be,
developed. The different types of relays of foreign design, at present
being installed, may no longer be in production in the countries from
which they were imported when time comes for their replacement. The
difficulties may then become insurmountable. It. is in this context that
we stress the need for identifying long term projects from those which are
not only amenable to solution within a short time but are also more
urgent.

645. This brings us to Lhe question of trying out under operating
conditions prevailing in this country, the new and improved engineering
and operating practices which have proved of advantage in other count
ties with such local modifications as may appear necessary in our condi¬
tions. fn such practical adaptive research, a careful judgement and a high
order of expertise are essential to make the best use of the patterns and
results of research abroad. While advantage may be taken of the know
ledge and experience gained by the railways in other countries, it may
not always be possible to adapt foreign devices in toto in local conditions.
This task of adapting what has been tried elsewhere with suitable inno¬
vations to suit our requirements is indeed a challenging one. Through
the international contacts which the Indian Railways and the RDSO
are maintaining, it should not be difficult to obtain detailed information
of various specifications including costs and performance results and
thereafter, with methods of trial and error research which have become
a well recognised approach in America, Europe and Japan, to modulate
such innovations for our own use. Among the advantages of this method
are the comparatively low costs, less time in reaching useful conclusions,
visible results and the easier carrying of conviction to the zonal Rail¬
ways.

646. Operations research —The potential benefits of operations re¬
search and the advantages which other countries, where the problems are
not dissimilar, have derived from such research are known sufficiently
well. Though we have been told that the RDSO is applying the princi¬
ples of operations research in its various investigations, we cannot help
remarking that very little is being done in this direction in an organised
manner or is programmed for the future. Whatever little has been accom¬
plished is by way of analytical studies of specific problems conducted on
the local initiative of some enterprising senior railway executives. What
is, however, needed is that in matters of railway operation and mainte¬
nance, research should be conducted into the practices obtaining on the
zonal Railways in various spheres of operation in order to arrive at the
near-ideal methods of operation and maintenance under varying condi
tions. It would also, in our opinion, be useful to make a quantitative
assessment of where and what safety facilities should be provided on the
various Railways and to what extent safety could be improved bv doing
so. An analysis of data such as the location of accidents, conditions of
trains, human and other factors and the facilities provided on each of the
Railways may yield useful clues as to the relationship between the pre¬
vention of accidents and the safety facilities provided and may be indica¬
tive of the standard of safety facilities required. Such studies, wc find
have been conducted on the Japanese Railways with advantage. If the
ultimate objective of the research organisation is to maximise efficiency,
safety and long-term economy, greater reliance will have, in future, to be
placed on methods of operations research.

Design

647- The entire research and testing activity is ultimately aimed at
developing new ideas and concepts so that equipment of a suitable design
■and practices which facilitate, and lower the cost of operation and main¬
tenance and maximise efficiency 1 of each component of rolling stock, per¬
manent way and signalling system can he evolved Tn short:, research fur¬
nishes data for absorption by the design wings.

104

048. We have been advised that a latge number of machines for use
in the mechanical engineering research and development laboratory, such
as the shock absorber testing machine, the abrasion resisting testing
machine atid ihe rolling load fatigue testing machines, etc. have been
designed by the RI)SO and manufactured in the railway workshops
using indigenous materials. We would like to commend these efforts. We
would also like to add that designing and development of machines for
special purposes which cannot be purchased as off-the-shelf items from
the trade should he a continuous activity.

1)49. Such special purpose machines can at best be viewed only as a
means to achieving more purposeful ends, namely, improved designs ol
components of locomotives and rolling stock. For this purpose, ade¬
quately equipped sections of the RDSO should, in our view, be locat
ed at the manufacturing units like the Locomotive Works at Chittaranjan,
the Integral Coach Factory at Perambur and the Diesel Locomotive
Works at Varanasi. Efforts should also be made to attract the best Indian
talent for design work from all sources and to encourage the designing of
improved jigs and tools for railway workshops and the better planning of
equipment gnd plant layout for workshops, loco sheds, sicklines, stations,
etc. When we say this, we have in view the specialist consultancy service
which the RDSO should provide in the designing and equipment of
such depots, ft is not our intention that the Design Wing of the RDSO
should function as a general-purpose drawing office at the beck and call
of the Railways and we would life the RDSO to guard against this.

Standards

650. Standardisation is a vital function of the RDSO and with the
many varying and rapidly growing demands, it 1 acquires increasingly
greater importance. We consider it useful that some sections of this Wing
of the RDSO should be located in the Railway Board so that complete
sets of standard specifications and drawings can be readily available on
demand and references regarding these can be disposed of speedily. We
would also suggest that the expert technical Standards Committees
should invite representatives of the Commission of Railway Safety and
some manufacturers of railway equipment on a selective basis to partici¬
pate in their deliberations so that the viewpoint of the latter can be
taken into account and at the same time the representatives of the Com¬
mission of Railway Safety and of manufacturers keep in touch with the
thinking of such Standards Committees.

Signalling and telecommunications

651. ' What was contained in the preceding paragraphs was intended
to convey an overall idea of the directions in which the activities of the
RDSO should be channelled. We would, however, like to bring into
sharp focus the rapid progress being made by advanced countries in the
development of signalling and telecommunication, particularly the use of
such items as axle counters, train describers, hot axle detectors, electronic
track circuits and automation in marshelling yards, improved communica¬
tion methods like message dialling and microwave. It has been represent¬
ed to us that adequate attention has not been paid to investigating prob¬
lems concerned with signalling and telecommunication peculiar to the
Railways or to strengthening the telecommunications network on the
railway system. We feel that there is great scope and urgent need for work
of this nature in the RDSO and we would urge that this receives its due
share of attention.

Checks and inspections

(>52. In part I of our Report we had stated that the RDSO need
not carry out test checks on the quality of maintenance and standard of
manufacture of railway equipment on the Railways. We would, how¬
ever, like to make an exception in the case of tests and inspections which
/ are made by the RDSO at the specific request of the zonal Railways, the
Railway Board or the Commission of Railway Safety. It occurs to us that
references from these authorities may be more and more frequent in
future. We would, therefore, suggest that a suitable organisation may be
created in the RDSO so that such requests can be dealt with without
causing interference and interruption in the other regular approved pro¬
grammes of the RDSO. We would also like to add that what we had
stated in part I of our Report does not apply to the production units
where the officers of the RDSO are already posted for carrying out
inspections. Similarly, the inspection of material manufactured in the
signal and telecommunications workshops should, in order to ensure uni¬
form quality, be entrusted to the RDSO. We understand that the inspec¬
tion of electrical signalling equipment manufactured by the various firms
is already undertaken by the RDSO, but only a small percentage of
production is inspected as a test check. This would have been adequate
if the signalling industry had been long established in the manufacture
of sophisticated signalling equipment and had its own research and
inspection units. In the present state of development when a number of
firms are entering the field and when those already in the field are taking
to new items, it is essential that a much larger proportion of electrical
signalling equipment is inspected both at the manufacturing stage and at
the assembly stage. The inspection organisation of RDSO should,
if required, be suitably strengthened to perform these essential functions.
It appears to us that the inspection units could with advantage be located
at Calcutta, Bombay, Madras etc.

Consultancy functions

053. Side by side with its functions as consultants to the Railway
Board and the zonal Railways in respect of engineering and operating-
problems, the RDSO have also, we are advised, been acting as consul¬
tants to the State Trading Corporation and the wagon building indusrLy.
We would like to commend the RDSO on this expanding role and
would urge that technical consultations should be provided in full
measure to these important clients. We would also suggest that such
consultation as may be asked for by the Commission of Railway Safely
should be made readily available.

654. We are told that the RDSO s credit as potential consultants to
the railways in developing countries is very high. We consider that with the
expanding band of competent officers and staff and with the growing
knowledge and expertise which the RDSO is steadily acquiring, render¬
ing of consultancy services by the RDSO would progressively increase
and more and more confidence will be placed in its technical advice.

Future development

655. We consulted the two Directors General of the RDSO who were
successively in charge of the RDSO during the time this Committee was
functioning. They were good enough to indicate the various projects on
which research may in future have to be carried out as also the directions
and the extent to which the various directorates in the organisation should

be strengthened. We do not consider out selves competent to* spell'out de¬
tails of prefects to which. (Jie RDSO sltould apply itself in future and
consider that this is a matter which would have to be left to the RDSO
under the guidance of the. Railway hoard and the Central hoard of Railway
Research keeping in view the requirements and priorities which may arise
lYopi time to time. A lew subjects whose urgency strikes us as pressing,
we would like to mention in passing. With the increased speeds of rolling
stock and the introduction of last non-stop trains Lite subject oi vehicle
dynamics has assumed great impor ance. Research on the various aspects
or riding quality of rolling stock from the viewpoint of both safety and
comfort as also stress analysis on vehicle structures and important compo¬
nents would have to be pursued and, if necessary, expanded. This research
must be suitably dovetailed inio a wide-range study of derailments to
establish guidelines for designs and maintenance practices which are con
ducive to greater safety. .Similarly, the problem of seizure of roller bearings
m fast non-stop trains particularly when the conventional method of station
stall 1 watching out for an overheated axle box from the station platform is
no longer applicable appears to call for an urgent study and solution. We
have referred to the incidence of seizure of roller hearings elsewhere. Here
we would like to emphasise the need for evolving a suitable device whereby
llie driver in the cab gets a timely warning of the malfunctioning wheel.
One or two other matters requiring study and research we have already
mentioned in an earlier chapter These were the need for research and
development of a self-propelled ultrasonic rail inspection car for detection
of rail flaws ancl the study of the problem of safe speed on turn outs of
varying degrees to ascertain the stage at which dangerous conditions are
liable to occur and to lay down limits of safe speed. These, in our view,
would be fruitful fields for research b\ the RDSO.

tiati. We would refrain from indicating the directions and the extent
in which the various directorates and wings of the RDSO should be
strengthened. We have, however, no doubt that expansion of the RDSO
would be necessary so that the RDSO is able to play the role assigned to
it.

657. It would also, in out view, lie necessary to svnchioiiise the expan¬
sion of the RDSO with the corresponding expansion in its basic physical
requirements. These include acquisition of land, provision of office and
laboratory accommodation, residential accommodation, water and electric
supply, sanitary and medical- facilities, recreational facilities, etc. The ex¬
penditure for provision of basic requirements should be distinct from the
working expenses of the RDSO to which we refer in the following
paragraphs.

658. Equipment- In the course of his evidence before us, the Director
General. RDSO. inclica ed the equipment tequired by the Organisation
in the next live years on considerations of a higher standard of safety in
train operation. A list of this equipment given bv the Director General.
RDSO, is shown in Annexure XII. We are advised that the RDSO is
in need of some very important equipment like the measuring wheel and
other telemetric devices, track recording-cum-rcsearch-car, pulsutnr with
hydraulic jack and test bench for fatigue testing, eddv current testing equip
mein, measuring instruments for signal and telecommunications equipment,
etc. We see no reason why the work in the RDSO should suffer for
want of necessary equipment and would suggest that procurement of equip¬
ment should be planned so as to meet effectively the needs of the RDSO

167

6j9, Finance —The budget allotment lot the RDSO lot the year
1969-70 amounts to Rs. 2.45 crores which works out to about 0.53 per cent
oi the gross ordinary working expenses ol the Indian Railways. It is ex¬
pected that with the expansion envisaged in the foregoing paragraphs the
budget of the RDSO may go upto about Rs. 5 crores annually in the
course of the next few years. This would be approximately 0.66 per cent
of the gross working expenses. This increase in expenditure in the course
of the next few years, would, in our view, be amply justified and would
be repaid in the form of higher standard of earnings, efficiency, and safety
in railway operation,

660. We would like Lo add that allotment of foreign exchange would
have to be an essential part of the budget allotment for the RDSO il
its activities are not to be hampered. It has been indicated to us that for
the proposed future annual expenditure of Rs. 5 crores, it will be necessary
to allocate about Rs. 1 crore in foreign exchange for the procurement of
equipment, training of personnel and acquisition of literature from abroad.
T his may denote a substantial increase in the allotment of foreign exchange
as compared to the previous year. We would strongly urge that foreign
exchange needed for the expansion of the RDSO should be released as
and when required.

661. Reorganisation of the RDSO —-It is our opinion that the re

organisation of the RDSO required lo fulfil the iole suggested in the
foregoing paragraphs should be carried out within one year so that the
maximum advantage can be derived from this organisation towards achiev
iug safer and more efficient operation. The RDSO should be developed
as a self-contained and expert body of high technological calibre, for an
organisation of this nature to be successful, there should be excellence not
only at the top but at each echelon of the heirarchy and the effort should
be to induct the most suitable officers and staff at all levels with suit
able motivating environment. It is, therefore, obvious that the RDSO's
rules of business and the yardsticks in respect of its staff, equipment and
materials, financial powers, etc., may have to be different from those which
are applicable ordinarily to the Railway administrations. To ensure that
there are no hold-ups or handicaps to progress anywhere in the organisa¬
tion, the overall head of the RDSO should be the Chairman of the Rail¬
way Board to whom the Director General should report direct. Finally, the
Director General who is the functional head should appropriately be select
id from amongst the experienced General Managers with a flair for re¬
search. We had suggested in Parr I of our Report that the head of tin:
RDSO should have a long enough tenure to make an impact cm the
organisation. If this involves a still higher grade for tire post temporarily
to enable the incumbent to continue, the upgrading would, in out view
be. justified.

Chapter XV

ACCIDENT STATISTICS

602. The statistics of accidents on the Indian Railways are published
by the Railway Board in Statement 41 of the Supplement to its Annual
Report on Indian Railways. A mass of data is tabulated in this statement,
the accidents on the open line being divided under three broad heads,
namely, train accidents, failure of railway equipment and miscellaneous.
Train accidents include train collisions, train derailments, lires including
explosions in trains and accidents at level crossings. Train derailments in
mid-section and within station limits and train accidents at manned and
unmanned level crossings are shown separately.

668. Diagnosis-oriented statistics —In order that statistics of train acci¬
dents may be of use, it is important that they should identify at least
broadly, the primary causes of the various types of train accidents. Only
then can the administration’s attention get focussed on the various basic
causes which give rise to accidents. Instead, unfortunately, we find that the
statistics of train accidents as compiled in Statement 41 of the Supplement
at present are oriented only towards their number and consequences. Train
accidents are split up numerically according to classes, i.e., collisions, de-
lailments, fires in trains, level crossing accidents, indicating separately how
many were reported to the local Government, how many were inquired
into by the Additional Commissioner of Railway Safety and their conse¬
quences, that is, total number of passengers and others killed or injured
and the approximate cost of damage and interruption to through communi¬
cation. There is no indication in this mass of statistics as to how many of
them were attributable to human element, technical defects or other causes.

664. In the statistics of failure of railway equipment it) the same State¬
ment, of course, some effort at indicating the causes is discernible. Even
hoe the failures of engines due to faulty design, material or workmanship
in the mechanical department are lumped together. Similarly failures due
to faulty material, workmanship or operation arising from the working of
running staff are also lumped together. In respect of train accidents, how¬
ever, no cause-wise analysis is attempted in the Supplement. Even the
Manual of Statistical Instructions merely stresses that statistics of train
accidents should include the number and ‘results’ of. accidents and it
makes no mention of causes.

665. We may mention that a small pamphlet entitled "A Review of
Accidents on Indian Government Railways” which is published annually
by the Railway Board, attempts an elementary analysis of causes of train
accidents under certain broad heads like ‘failure of railway staff’, ‘failure
of equipment—mechanical, track and electrical’, ‘sabotage’, ‘accidental’
and ‘cause not established’. This analysis is confined to two categories of
accidents, namely, collisions and derailments.

666. While even broad heads of causes may have some value, the
statistics of train accidents to be of intrinsic value should, in our opinion,
itemise these broad heads further. For instance, statistics of accidents as-
cribable to failure of the human element should be further sub-classified
under failure of station staff, failure of train crew, i.e., engine crew and

168

169

guard and failure of other staff. Similarly, technical defects should be
further itemised under locomotive and electric multiple unit defects, car¬
riage and wagon defects, track defects, signalling apparatus defects, electri¬
cal defects, defects in other structures and combined defects. Even under
the residual head ‘Accidental’ or ‘other causes’, there would be considerable
scope for useful itemisation particularly in regard to derailments. Train
accidents in respect of trains driven by diesel and electric locomotives could,
usefully, be given separate treatment since conditions under such traction
vary substantially and useful conclusions can be drawn from a cause wise
analysis. Similarly automatic signalling has its own special features and
accidents on these sections may be analysed separately with respect to their
causes. We do not intend here to give an exhaustive tabulation of heads
under which statistics of train accidents should be split up but merely to
indicate the direction in which the compilation should be oriented so as
to be of value to the administration.

667. Uniform basis of compilation of statistics —During the course of
analysis of train accidents which we attempted we observed that the con¬
ception and basis of compilation of statistics of train accidents was not
identical on all the Railways. For instance, derailments at outlying sidings
were treated as station derailments by one Railway and mid-section derail¬
ments by others. Collisions due to reception of trains on lines fouled by
vehicles on adjacent line or lines or due to failure of station staff to put
back signals to ‘on’ after the arrival of the preceding train were classified
as collisions attributable to miscellaneous causes by some Railways instead
of failure of station staff. We would suggest that accidents statistics under
different heads should not only be clearly indicative of the basic causes
but should be compiled on all the Railways on a uniform basis and
instructions which leave no room for ambiguity should be issued to all the
zonal Railways.

668. Streamlining the classification —During the course of our statisti¬
cal study of accidents we observed that causes of fires on diesel or electric
locomotives are being treated as train accidents on Railways. This factor,
in our view, is likely to deflect the attention of Railways from the real
nature of the occurrence. Fires in diesel or electric locomotives are
more in the nature of engine failures than accidents to trains, and a more
accurate indication of the nature of such occurrence could be given if they
could be brought under the broad head ‘failure of railway equipment’.
Fires in trains should, in our view, encompass cases of fires in vehicles and
wagons only. If necessary, fires in electric and diesel locomotives may be
brought under a separate sub-head under the general head 'engine failures’
to isolate them from the mass of figures included under ‘engine failures’.
Such a course would, in our view, direct pointed attention to cases of fires
in electric and diesel locomotives.

669. We also notice that time failures of engines under the broad head
‘failure of railway equipment’ are reckoned on the basis of delays of one
Hour or more caused to trains due to malfunctioning of locomotives. While
such standards may have been all right for steam traction years ago, we
consider them inapt in the present day conditions, particularly, in case of
diesel and electric locomotives whose efficiency index must be very different
and for which a much shorter duration should, in our view, be prescribed.
In any event we do not see why in this respect the performance of steam,
diesel and electric locomotives or their handling by cpivers should be com¬
pared on the same basis.

L/J(N)3M of Railway—13

170

t>70. We also notice that at present failure of railway equipment.' in¬
cludes only failures ol rolling stock, permanent way and overhead electric
wires. Failures of signalling apparatus are not included under this head.
The effect of a breakdown of signalling installation, as for instance in a
yard equipped with route relay interlocking or in a centralised traffic con¬
trol or automatic signalling territory is heavy delays in train running if
not a complete stoppage of movement. Similarly, a total failure of com¬
munications on a section can paralyse train running. We, therefore, sug¬
gest that a breakdown of modern signalling installations or means of com
munications may also be classified under the head ‘failure of railway equip
rnent’. We might point out that on the Japanese National Railways, power
transmission failures, block instrument failures, signal and interlocking
failure are classified as accidents. While we do not suggest going that far.
we do consider that breakdown of signalling apparatus should be included
under the head ‘failures of railway equipment’.

671. We also consider that accident statistics compiled at any time
should be examined periodically to assess their value. If some of them nc
longer have utility from the viewpoint of management to enable them
to initiate remedial action to enhance safety, they should be deleted. Con
trarywise, new statistics which may help in formulating measures foi
securing increased element of safety of railway operation may be intro
duced. In other words, the role of statistics should be essentially such at
can assist the administration in aiming at improving the service rather
than a mass of figures which can at best have only an academic interest.

Chapter XVI

SAFETY ORGANISATION

672. We had briefly touched on the safety organisation in Part I of
our Report and had stated that we proposed to examine the working of
the organisation further. During the course of our tours we had oppor¬
tunity to discuss the role and the functioning of the organisation with
officers at all levels. We were also able to discuss the subject at length with
the Railway Board.

673. Safety to have a permanent effect must be built into the working
of the Railways. In the final analysis safety depends on the staff in each
department of the Railways and on everyone doing his work conscientiously
and properly. An accident generally speaking is nothing but a breakdown
in efficiency. It is necessary to emphasise this in order that the role of the
safety organisation may be seen in proper perspective.

674. The four important departments concerned with safety of rail
travel are the operating, the mechanical engineering, the signal engineering
and the civil engineering departments. In order that rail travel may be
safe, it is necessary that each department should do its bit in the best
possible manner. The civil engineering department must see that the
track is maintained in the best possible condition so that there is no likeli¬
hood of derailment through defects in track. The mechanical department
must see that the locomotives as well as carriages ?n which the public travel
and the wagons in which goods are moved are well maintained and in
perfect fettle, since defects in maintenance of rolling stock can lead to
accidents. Similarly the signal engineering department must see that its
equipment whether operated mechanically or controlled automatically
functions properly. Lastly, the department responsible for transportation
which is tne end product of all railway activity must take care that train
movement takes place according to rules as trains pass from one station
to another.

675. Since safety must depend on each department working properly
in its own sphere and in coordination with the others, it follows that safety
in rail travel cannot be achieved by merely super-imposing a separate safety
organisation on other departments. That is of course not to say that some
provision may not be necessary for inculcating safety consciousness in the
staff of the various departments concerned with the movement of trains.

676. Until the time the Kunzru Committee made its recommendations
there was no separate safety organisation on the Railways even though there
were safety cells working in the Railway Board and the Headquarters of
each zonal Railway. The main function of these cells, however, was to
analyse the causes of accidents so that the factors responsible for accidents
could be identified and remedial measures taken. This work was, more
or less, in the nature of a study and analysis of causes of accidents and find¬
ing ways and means of eliminating them. The safety organisation which
was set up after the Kunzru Committee’s report had somewhat different
objectives. In the first part of their report that Committee had suggested
the creation of an ad hoc organisation which would fit into the framework
then existing for the purpose of an integrated implementation of their

171

recommendations in the matter of safety of rail travel. This ad hoc orga¬
nisation was to be set up at various levels from the Railway Board down
to the divisional or the district level. It may be mentioned that at that
time two of the Railways did not have divisional organisation. Since then
both these Railways have been brought under the divisional system.

677. The general set-up of the safety organisation which was created
in pursuance of the recommendations of the Kunzru Committee and which
exists at present is broadly this. In the Railway Board’s Office there is a
Safety Directorate under the charge of a Director. Originally there was also
a Joint Director in this Directorate but later this post was abolished as an
economy measure. On the zonal Railways the safety organisation was placed
under a special officer designated as Transportation Superintendent (Safety),
Until recently this post was in the Intermediate Administrative Grade on
all but three Railways where it was in the Junior Administrative Grade.
Since then uniformity has been brought about and at present, these posts
are all in the same grade, namely, the Intermediate Administrative Grade.
At the divisional level. Safety Officers were appointed—some of them in
senior scale and others in junior scale. Very few of the posts of Safety
Officers, it appears, however, were new creations as by and large the
posts of Divisional Operating Superintendent (General) on most of the
divisions and of Assistant Operating Superintendent (General) on some
of the divisions were redesignated as Divisional Safety Officer in the
senior scale or the junior scale as the case may be. Attached to these Divi¬
sional Safety Officers on each division was a team of specially selected
Safety Counsellors drawn from che transportation, the mechanical engineer¬
ing and the civil engineering departments to assist the Safety Officer in
his work. Generally speaking four Safety Counsellors were attached to a
Divisional Safety Officer, namely, a loco inspector, a carriage and wagon
inspector, a permanent way inspector and a transportation inspector. On
some divisions there were only three Safety Counsellors, either the carriage
and wagon inspector or the permanent way inspector being dropped. The
team of Safety Counsellors did not include any staff from the signal engi¬
neering department.

678. The main function of Safety Counsellors as visualised by the
Kunzru Committee was to make personalised contacts with and educate
the staff of the various departments in the observance of safety rules. They
were required to give talks on safety matters and to hold meetings of the
staff in their respective jurisdiction. In addition they were also required
to carry out inspections of an intensive nature from a safety angle.

679. Apart from the duties mentioned above the safety organisation
undertook propaganda drives by means of posters, safety camps and so on
for the purpose of inculcating safetv consciousness in the staff concerned
with the movement of trains.

680. The Kunzru Committee, it may be mentioned, considered again
in Part II of their Report the subject of safety organisation which had in
the meantime been set up. In this part of their Report the Kunzru Com¬
mittee apparently took the view that so far as the organisation in the
Railway Board and the zonal Railway Headquarters was concerned, it
should be made permanent and where necessary, strengthened. As to the
divisional organisation, it was recognised by that Committee that the
responsibility for safe maintenance of track, rolling stock and signalling and
interlocking apparatus rested with the respective departmental officers. In

173

their view the function of the safety organisation at the divisional level
was to consist m dealing with accidents, arranging inquiries, implementing
recommendations and taking preventive measures in this behalf. The
Kunzru Committee were of the view that the responsibility for safety educa¬
tion and supervision should devolve on the supervisors of the different
departments and multiplicity of inspections as a permanent measure was
not conducive to effective supervision. They, therefore, thought that the
Safety Counsellors whom they had suggested in Part I of their Report as
an ad, hoc arrangement should be absorbed in the respective cadres of their
department. In other words the Kunzru Committee did not visualise that
Safety Counsellors would be a permanent feature of the safety organisation.

681. We had pointed out in Part L ol our Report that there had been
a significant fall in the number of train accidents in practically all cate¬
gories. This tendency continued in the year 1968-69 as can be seen from the
following table : —

Serial Category

No.

Years

rJL- .

“"Toea-.

(13

1963-

1984-

1965-

1966-

1967-

1968-'

1 Collision*

2 Derailment*

-1.31(1

1,300

1.036

962

870

892

683

3 Level crossing accidents

1 Os

101

146

123

104

111

129

4 Fire* in trains

5f>

Total

1,637

1,636

1,293

1,201

1,097

1,111

906

682. It would be seen that there has been a fall of 44 per cent during
the last six years and the number during the latest year was the lowest.
For this satisfactory performance the credit of course must go not only to
the safety organisation but to all categories of railway staff including
officers, supervisors and railwayruen of all departments. It is due to the
devoted and conscientious labour of all categories of railway staff and to
the technological aids introduced that this reduction in the number of
accidents has been possible. Nonetheless, it is clear that the safety organisa¬
tion has played a vital role in enhancing the element of safety in rail travel
by instilling safety consciousness among staff and eradicating short cut
methods which jeopardise safety.

683. It is in the light of these observations that we are called upon
to express our views on the future of the safety organisation and to indi¬
cate what changes, if any, are necessary to make it an effective means of
enhancing safety. We have already referred to the fact that the safety orga¬
nisation is in three tiers, namely (1) at the level of the Railway Board, (2)
at the level of zonal Railway headquarters, and (3) at the divisional level.

684. So far as the level of the Railway Board is concerned we are of
the view that the Directorate of Safety has a useful function to perform
inasmuch as it focuses attention at the highest level on matters having a
bearing on safety. Analysis of long-term trends of accidents, examination
of various suggestions and recommendations to promote safety and follow¬
ing up the implementation of the recommendations coupled with on-the-
spot checks to see whether short cut methods are being adopted and how
these can be eschewed are, indeed, highly useful functions. We, therefore
consider that the Directorate of Safety should continue to perform these

174

functions as a permanent measure. We are, however, disappointed to note
that the post of the Joint Director in the Directorate of Safety was abolish¬
ed some time ago for reasons of economy. This post had been created pri¬
marily so that at all times the Director or the Joint Director could go out
on inspection and the two officers could take turns. The main objective of
having a Joint Director in addition to a Director was that the Directorate
should be able to see through field inspections that safety work is carried
on by the Railways on the right lines. As a retired Chairman of the Rail¬
way Board pointed out it is necessary that effective supervision should be
exercised over the working of the safety organisation on the Railways. To
use his own words, “It is essential to see whether the Railways are really
doing what they are supposed to do and what they are reporting”. We con¬
sider this objective unexceptionable and would strongly recommend that
the post of Joint Director in the Safety Directorate should be revived.
Considerations of economy should not, in our opinion, stand in the way
where safety is concerned.

685. The next tier of the safety organisation is at the zonal Railway
headquarters. As stated earlier, the Transportation Superintendent (Safety)
on each zonal Railway is an officer from the Operating Department in the
Intermediate Administrative Grade. The evidence which was tendered be¬
fore us during the course of our tours showed that the Transportation
Superintendent (Safety) has a lot of office work on account of which he is
unable to find enough time to go out on line as often as he should. That
the Transportation Superintendent (Safety) should spend a good deal of
his time in inspections from a safety angle goes without saying. At the same
rime we think that to keep in touch with the actual trend in accidents and
other safety measures which are evolved from time to time either on the
basis of accident inquiries or of other sources, he should not be isolated
from case work dealing with accidents. We would, therefore, suggest that
the headquarters safety organisation which is headed by the Transportation
Superintendent (Safety) may be strengthened, where required, by the ap¬
pointment of an officer in the senior scale who would help the Transporta¬
tion Superintendent (Safety) both in inspections as also in routine case
work dealing wijth accidents.

686. Finally, we come to the organisation at the divisional level. As
we have pointed out earlier the Divisional Safety Officer on many of the
divisions is in the senior scale but in some the officer is an assistant officer
who looks after safety work under the overall control of the Divisional
Operating Superintendent. As already indicated, except for a few posts of
Divisional Safety Officer which were created either in the senior scale or
iri the junior scale in pursuance of the recommendations of the Kunzru
Committee, by and large the posts of Divisional Operating Superintendent
(General) where they existed or of Assistant Operating Superintendent
(General) had been redesignated as those of Divisional Safety Officer. These
officers were assigned extra duties concerned with education of staff in safety
matters, personalised contact with staff, issue of posters, leaflets and other
propaganda material in addition to the duties which they used to perform
as Divisional Operating Superintendent (General) or Assistant Operating
Superintendent (General).

687. The duties of each of these Divisional Safety Officers whether they
are in senior scale or junior scale are more or less identical. A Divisional
Safety Officer in the junior scale, however, besides being unable to pull his

175

weight with his colleagues in other departments is unable to relieve the
Divisional Operating Superintendent of the workload in the same manner
as an officer in the senior scale would. For a Divisional Safety Officer to
be able to carry weight with his counterparts like the Divisional Mechanical
Engineer and the Divisional Civil Engineer and to take a purposeful part
hi the safety meetings and discussions which are held at the divisional level,
we consider it essential that the officer should have the same status as the
other officers he has to deal with. We are of the opinion that the system in
this regard should be uniform and the Divisional Safety Officer in each of
the divisions should be in the senior scale. Wherever the post is held at
present by an assistant officer, it should be upgraded. We might add that
whichever division we visited during the course of our tours, the evidence
of the Divisional Superintendents was unanimous that the Divisional Safety
Officer should be in the senior scale.

688. Position of Safety Counsellors —Finally we come to the part of the
divisional safety organisation which consists of Safety Counsellors. These
Safety Counsellors, as stated earlier, come from the transportation, the
mechanical and the civil engineering departments. On the question whether
the Safety Counsellors from different departments should, continue to func¬
tion under the Divisional Safety Officers, we found considerable diversity
of opinion. The majority of witnesses who gave evidence before us on this
subject held the view that the present arrangement whereby Safety Coun¬
sellors from various departments are placed under the Divisional Safety
Officer is efficacious and should continue as at present. It was argued that
if the Safety Counsellors from the mechanical and the civil engineering
departments were to be reverted to their parent departments, there was
danger of their being utilised for general purposes rather than specifically
for safety matters. It was also stated that safety is an integral matter ii,
which various departments are concerned and it is, therefore, necessary
that the team of Safety Counsellors consisting of representatives of various
departments should function one and any spot checks and inspections which
they make should be made as a team. As against this, some witnesses held
the view that the time has now come to carry out the intention of the
Kunzru Committee to revert the Safety Counsellors to their respective
departmental cadres. One Railway expressed the view that in the course of
the last six years. Safety Counsellors have become another inspectorial
organisation over and above the normal supervisory staff. This develop¬
ment, according to this Railway, ha* resulted in the normal supervisory staff
feeling less responsible for ensuring that unsafe practices are eradicated.
This Railway, therefore, felt that Safety Counsellors should not be allowed
to continue as at present and that the responsibility of ensuring safety
should once again be put squarelv on the shoulders of the departments con¬
cerned.

689. It seems to us that there is a good deal of force in the opinion
expressed by this Railway. As we have indicated, safety is not so m e th ing,
which can be imposed by an outside organisation. It must be built into
the various departments of the organisation itself and particularly in the
departments mainly concerned with movement of trains. Furthermore,
there was some evidence to show that when defects are pointed out by
Safety Counsellors in the work of departmental supervisors who are of the
same rank and at times even senior, the present arrangement becomes a
source of resentment. When such a feeling is generated in the department
concerned, the department is disposed nor <n take a serious view of the

170

defects pointed out by the Safety Counsellors. Besides, the Divisional Safety
Officer, being an Operating Officer, is not always in a position to evaluate
the usefulness of what the Safety Counsellors of other departments under
his control may point out and ordinarily all that he does is to forward the
observations of the Safety Counsellors to the divisional officers of the de-

J artments concerned. Such references at times create friction and inter-
epartmental difficulties which have to be resolved at the level of the Divi
sional Superintendent,

690. Taking' into consideration all these difficulties, we are of the
view that the Safety Counsellors of the departments other than transporta¬
tion should be sent back to their parent departments. This we feel would
not only be in conformity with what the Kunzru Committee had visualised
but would be a step in the right direction and in the best interests of
the Railway administration. When, however, we say that the Safety
Counsellors should go back to their respective departments we do not
mean that they should cease to carry on their present function of promot
ing safety. Our intention is that the Safety Counsellors of departments
like the mechanical engineering and the civil engineering on being sent
back to their parent departments should continue to carry on their present
functions though under the supervision of their respective divisional
officers. If this is done, not only will the Safety Counsellors be able to
continue to play their useful role—perhaps more so—but at the same
time the friction which the present arrangement engenders would disap¬
pear. At the same time there would be no obscurity left that the responsi¬
bility for ensuring safe practices rests with the departments concerned.

691. We would also suggest for the consideration of the Railway
administrations that when the Safety Counsellors are reverted to their

f iarent departments, posts of Chief Permanent Way Inspector, Chief Loco
nspector. Chief Carriage and Wagon Inspector and Chief Transportation
Inspector should be created in lieu of the existing posts of Safety Coun¬
sellors on each division. The functions of these Chief Inspectors should be
to carry on the work of safety by educating the staff in correct methods of
working, propagating the importance of safety by mass communication
methods and reporting to their divisional heads about any defects found
by them during the course of their checks on the line which jeopardise
safety. These posts, in our view, should be in Class II. With a higher status
and rank for these Chief Inspectors there should be hardly any feeling of
resentment among the senior supervisory staff whose work is commented
upon. Moreover, with higher status the Chief Inspectors would be in a
position to deal effectively with defects found during their inspections. The
Chief Transportation Inspector would, of course, continue to function
under the Divisional Safety Officer.

692. These Chief Inspectors should concentrate on personal contact
with the staff whom they are required to guide and train in safety mea¬
sures. One aspect of their approach should be the importance which the
staff must attach to their personal safety. This appeal to the personal
safety of staff is likely to lead the individual to pay greater attention to
the safety of others. We consider that in the selection of such Chief Ins¬
pectors, their aptitude, mission and dedication to the cause of safety should
be the primary consideration and they should be handpicked men.

Safety Camps

693. We might mention here that a large number of witnesses told
us that the short safety camps which were run by the various Railways

177

during the last few years with the object oi inculcating safety conscious¬
ness in the staff were highly useful. The staff of various categories and of
different departments used to gather in these camps. Discussions on safety
matters including reference to recent accidents, why they were caused
and how they could be avoided, and what were the practical difficulties oi
the staff in observing the rules used to form the mam curriculum of such
safety camps. Often senior officers visited the camps and participated in
and invigorated the discussions. A retired Chairman of the Railway Board
told us that these safety camps produced highly satisfactory results. He
said that the object of organising these camps was that as large a number
of staff as possible should go through them. The gathering together of
staff of various departments and categories in one camp, their having com
munity life and free discussions on safety aspects helped to enliven their
safety consciousness for the future and created a marked impact on them.

694. We understand that safety camps were given up some time ago
on the ground that a majority of staff had already passed through such
camps. We regret, we are not inclined to agree with this reasoning. Safety
consciousness is a continuous process and not something which needs to
be instilled but once. The impact which a short stay at a safety camp may
make is more in the nature of the appeal of a well devised slogan or of
a message effectively delivered. By the very nature of things, a message of
this nature may, with advantage, be pressed home at reasonable intervals.
These safety Oamps should not be confused with the regular refresher
courses to which we have referred in an earlier part of the Report. The
object of the refresher courses is to refresh the knowledge of the staff
with respect to knowledge of the rules and to bring them uptodate so that
they go back with a better idea of the rules and procedure of working
which they have to follow. Safety camps, on the other hand, are not in¬
tended to deal with such routine rules and procedure. Their objective is
to invigorate the safety consciousness of the staff. We would, therefore,
urge that these short safety camps which have proved to be useful should
he revived.

695. Safety Model Car —We would also like to make a mention here
of a highly enterprising effort made by the Divisional Superintendent and
his officers at Lucknow in making a “safety model car" which we had
opportunity to see. This safety model car is a mobile vehicle made out
of an ordinary parcel van and aims at providing visual education on safety
matters to staff on the line. In this car, various types of equipment used
by staff concerned with train operation, their use and the rules pertaining
to their duties, the precautions to be observed by the staff to prevent un¬
toward happenings and accidents have been demonstrated in an attractive
manner. A number of posters and slogans, photographs and charts have
been displayed which catch the eye and make a direct appeal to the mind.
The staff who visit the exhibition in the mobile car get an opportunity
to discuss various matters with the demonstrators. The car thus functions
as a safety seminar on wheels. In addition, the safety car is used as a model
refresher course classroom for class IV staff. We were told that the project
was a part of the safety drive and its aim was to take the message of safety
to all stations of the division. The car is stabled at various junction stations
according to a fixed programme so that the staff required to be given
refresher course within a certain radius could attend it using convenient
train services from and to their homes.

178

696. We weie impressed by the initiative of the Divisional buperiti-
tendent and his officers and would recommend that other divisions of the
Railways may also adopt similar imaginative methods.

697. High visibility clothing—Vie have already stressed the need for
the emphasis which the safety organisation must lay on the personal safety
of staff. A majority of the fatalities to railway staff are understood to occur
to those railwaymen whose work exposes them to the danger of being
struck down by trains or by other moving vehicles in yards. The fear of
running down staff on the line is naturally a cause of great anxiety to
drivers and shunting staff. In order to deal with this, the railways in the
United Kingdom have devised high visibility clothing in the form of short
highly visible jackets to he worn over the normal clothing so that the men
working on or near the track are more easily seen by drivers of approach¬
ing trains both during day and night. We recommend that this device in
an appropriate form be introduced on the Indian Railways for the safety
of railwaymen.

698. Inspections —We would like to warn against the inspections of
supervisors and officers in the safety organisation becoming routine inspec¬
tions like those of other departmental supervisors or departmental officers.
Inspections and spot checks by those in the safety organisation should be
devoted solely to highlight unsafe methods of working and how they can
be eschewed without undue detriment to speedy movement of traffic. Only
then can the safety organisation justify its continued existence and serve
the purpose which was the basis for its creation.

Chapter XVII

SUMMARY OF OBSERVATIONS AND RECOMMENDATIONS—
ACKNOWLEDGEMENTS
Summary of Observations and Recommendatiotis

699. For the reader’s convenience, we have summarised in the follow¬
ing paragraphs the observations and recommendations made by us in the
various chapters of this Report. We would, however, reiterate that for a
proper appreciation of the purport of what is given in the summary, it
is necessary to go back to the observations in the main paragraphs which
set out the background, the evidence and facts and figures on which these
observations are based.

Chapter I—Introductory

(1) Part I of our Report was devoted mainly to a review of the post
tion of accidents on the Indian Railways since the appointment of the
Kunzru Committee in the light of recommendations made by it and their
implementation.

(Para 1)

(2) In this part of our Report, we have addressed ourselves to sug
gesting measures for further minimising accidents.

(Para 1)

(3) We consider that the record of safety of rail travel on the Indian
Railways must be judged in the context of the task that the Railways aie
called upon to perform. Any sweeping generalisations which may be drawn
from our observations on specific issues, itemised for the sake of claritv.
in the first part of our Report or in this part, would be un-justified.

(Para 2)

(4) We do not wish our remarks to be taken to mean that nothing
remains to be done to promote safety in rail travel. We feel that with
increased axle loads, speeds and more intensive operation, the need for atten¬
tion to the maintenance of track and rolling stock would be greater. The
future may, therefore, necessitate a higher degree of safety precautions and
consciousness than at present. The quest for safety in rail travel will, thus,
have to be an unending one.

(Para 3)

(5) Notwithstanding the use of modern technological safety devices, we
believe that the steps which the Railway administration may take not only
to instil a higher degree of safety consciousness in its men but also to raise
the general level of morale and keep the sense of duty pitched at a high
level will pay rich dividends.

(Para 4)

(6) Apart from direct causes of accidents as brought out in the accident

inquiry reports, we have addressed ourselves to the more deeprooted factors
which even though largely latent do, in course of time, give rise to condi¬
tions which cumulatively have the effect of eroding whatever makes for
organisational and individual efficiency; any drop in one or both of these
assuredly makes an impact on the safety of rail travel. (Para fi'i

179

180

(7) We have gone into matters whose link with train operations though
seemingly indirect is, nevertheless, in our view of a basic character, parti¬
cularly the aspects concerning the human element as viewed from a wider
perspective.

(Para 6)

(8) We are convinced that the extent to which the Railway adminis¬
tration is able to locate and remedy the factors—whether latent or apparent,
remote or direct—which give rise to failure of the human element, to that
extent a greater measure of safety in rail travel would follow.

(Para 6)

(9) We wish to strike a note of caution against exaggerated notions of
economy which on occasions are apt to assail the railways as accidents re¬
sult not only in direct costs but in indirect costs also, and to these costs get
added the sufferings of the victims of accidents and the loss of the fair
name of the railways which cannot be reckoned in terms of money.

(Para 7)

Chapter II—The human element

(10) We have, in Part I of our Report, shown that a laige number'of
accidents is caused directly by failure of the human element. Even out of
the remaining, a good number can be traced indirectly to the failure of
staff to carry out properly their duties of maintenance of track, engines,
rolling stock or signals. The mechanical devices and safeguards which
may be employed by the Railway administration in its various fields of
operation have still to rely for their operation or maintenance on the
human mind and hand.

(Para 9)

(11) We are of the view that unless the standards of service discipline
are of a high order, the eventual result of corporate effort would be in
different and in a field of work like railway operation it would be attended
with hazard

(Para 10)

(12) We are convinced that while the Railway administrations and
their core of dedicated workers have striven hard to increase the measure
of safety and to improve their performance generally, the position would
have been better and the level of safety and efficiency even higher but for
the factors which have affected discipline adversely.

(Para 13)

(13) We think that the factors which generate indiscipline among the
staff have also an effect on the morale of executives; in fact, whatever en
genders one makes for erosion of the other.

(Para 15)

(14) While we recognise that the main function of trade unions is to
protect the interests of the staff and strive for better working conditions for
them, we feel that the unions have an equally vital role to play in incul¬
cating duty-consciousness and a sense of discipline in the rank and file of
the staff. We consider it necessary to emphasise the importance of the dual
role which the trade unions are expected to perform and express the hope
that this would receive due attention of the office bearers and members of
the unions.

(Para 18)

181

(15) We considei that not only from the point of view of discipline
among staff and the functioning of the administration but also of the
workers themselves, it is advantageous that there should be only one recog¬
nised employees' union on each Railway with a recognised federation at
the apex.

(Para 22)

(16) We recommend to the Ministry of Railways to explore ways and
means whereby recognition is given to only one trade union on each of
the Railways.

(Para 22)

(17) We feel convinced that the present system of allowing outsiders
as union office-bearers leaves scope for non-railwaymen with political lean¬
ings and alignments with different political parties to gain control over
the trade unions and direct the movement more with the aim of furthering
their political ends than in the interest of the trade union movement.

(Para 25)

(18) We wonder if the time has not come when the railwaymen them¬
selves can competently manage the affairs of the unions and effectively re¬
present their case in negotiations. If necessary, they can take the help of
salaried persons on their staff and of paid advisers and consultants. But
actual leadership including all office bearers should come from the railway-
men themselves. This process would be facilitated and accelerated if the
Railway administrations create a sense of security among their employees
who function as office-bearers or enter into negotiations with them.

(Para 25)

(19) We understand that the problem of outsiders as union office¬
bearers is under consideration in a wider context by the National Com¬
mission on Labour and we, therefore, desist from making any concrete
recommendations on this point.

(Para 25)

(20) We welcome the policy adopted both by the Railway administra¬
tions and the recognised unions on the Railways of not favouring recogni¬
tion of sectional (category-wise) unions.

(Para 26)

(21) (i) It is our view that staff in senior supervisory posts drawing

gross emoluments of Rs. 500 per month or above should not
be allowed to become members of recognised unions of rail¬
way workers.

(ii) For all such supervisory categories we favour one separate
association on each Railway with a federation at the apex
which should receive due recognition of the Railway ad¬
ministration.

(iii) It is desirable that some machinery in the nature of arbitra¬
tion should be instituted by which collective problems con¬
cerning such supervisory staff which cannot otherwise be
resolved should he dealt with.

(Paras 30 and .‘il)

(22) We find that of the grievances which figured most among the
cases of individuals sponsored by the trade unions in respect of station staff
and of driving staff—the top three places are taken by (i) payment of

182

arrears of pay, allowances, etc., (ii) sanctioning of increments, and (iii) con¬
firmation or fixing of pay or seniority or promotion, in the order shown.
We consider it doubly unfortunate since a properly managed Personnel
Branch, even if if were not welfare oriented, ought certainly to be able to
take care of these matters so that the staff do not have occasion to com¬
plain, much less feel the need of channelising these matters through the
trade unions.

(Para '16)

(23) We are of the view that the role played by the Welfare Organisa¬
tion in the matter of removal of genuine grievances of staff has evidently
been ineffective. The Welfare Organisation has not succeeded in bringing
contentment to the employees insofar as the redress of their individual
grievances is concerned.

(Para 38)

(24) We welcome the working of some revitalised Welfare Bureaux in
some of the divisions of the Railways.

(Para 39)

(25) We hope that the time will soon come when the staff all along
the line feel that if they have some grievance or difficulty it is the Welfare
Inspector to whom they should address it.

(Para 40)

(26) We recommend to the authorities the imparting of such orienta¬
tion training to the Welfare Inspectors as will enable them to accomplish
what their functional designation implies.

(Para 41)

(27) We appeal to the Ministers that they should do all they can to in¬
sulate tlie officers within their charge from outside influence. We hope that
the Minister of Railways would be equally anxious to sustain the morale
of his officers and would set precedents whereby outside intercessions are
eliminated.

(Para 46)

(28) We consider it would be a healthy practice if the Minister ol
Railways were to lay on the table of both Houses of Parliament every
quarter a statement giving the details about letters and representations
received by hint from Members of Parliament in the nature of intercessions
on behalf of individual members of staff and indicating what, if any, action
has been taken on them.

(Para 47)

(29) A more radical and fundamental method of eliminating political
influence in such matters may be to convert the Railway Board into an
autonomous statutory corporation as is the case in the United Kingdom.
It is not, however, within the purview of this Committee to investigate
into the pros and cons of this proposal and to pronounce on its desirability.

(Para 48)

(30) The functioning of the Vigilance Organisation and its role in
its present form has engaged our attention. We cannot help observing that
without any further loss of time, steps should be taken by the Govern¬
ment to undo the damage which has been done by the functioning of this

]»3

organisation which it might have once been thought, would root out cor
ruption but which instead is throttling the healthy organism of the Rail
tvays, We would suggest action along the following lines:—

(i) While nothing must be left undone to root out corruption in
whichever quarter it may exist, it should be understood that
this duty devolves squarely on the Railway administration
itself and not bn any organisation which has the semblance
of an outside policing organisation. It equally devolves on the
administration to protect honest and innocent officials from
allegations by unscrupulous persons who may be nurturing
grievances against their superiors or fellow workers.

(ii) No investigation should be taken in hand against any railway
official, including a gazetted officer, without the concurrence of
the Head of the branch or of the organisation corresponding to the
status of the official against whom there is a complaint. While
we would like to leave the procedure in this behalf to be settled
by the Railway administration, we would as a broad guide
line, suggest that for a class III employee other than a senior
supervisor, the concurrence of the Divisional Superintendent (or
an authority of an equivalent rank in the case of other than the
divisional employees) should be obtained. For investigations
against a senior supervisor, the prior concurrence of the Head
of the department concerned should ordinarily be taken. In
respect of an officer working on a Railway, administration, the
General Manager should be taken into confidence besides the
concurrence of the Member concerned of the Railway Board. In
seeking such concurrence, all the material available on the basis
of which the case for investigation is sought to be made out
should be placed before the competent authority and if the
latter after considering the material finds that there is no case
for investigation, the matter should not be pursued further and
the discretion so exercised should not ordinarily be questioned.

(iii) While we commend the directive that no notice must be taken
of anonymous or pseudonymous complaints, we arc of the
view that the purpose behind this directive is set at naught by
initiating investigations on ‘source’ information. We deprecate
the practice of accepting such information. Such information
should, except in extraordinarv circumstances, not be given any
credence. Only in very exceptional circumstances and that too
when the authority competent to give concurrence for initiat¬
ing investigation has personally satisfied himself as to the ante
cedents and motives of the informer mav notice be taken of
such information.

(iv) In the Railway Board, the Directorate of Vigilance should be
headed by a railwayman of considerable experience and proved
integrity who should have the rank of a Director functioning
directly under the Member Staff. We do not consider that there
is any justification for the post of the Director General (Vigi¬
lance).

(v) In the Vigilance organisation, both in the Railway Board's office
and in the Railway administrations, the lower officers and in
spectors should all be railwaymen haring excellent record and
renuouinn for intwifv and a flair for investigation, hi our

184

view, the police inspectors and officers who have little.know¬
ledge of railway working and who, in an organisation like the
Railways would have problems of adjustment, do not have any
utility in the Vigilance organisation.

(vi) We welcome the assurance given to us by the representative of
the Special Police Establishment that preventive checks not
based on any specific complaints have been discontinued. We
wish to record that such checks do not serve any purpose and
if these have been discontinued, these should not be revived.

(Para 68)

(31) We would suggest a self imposed ordinance by the Central Vigi¬
lance Commission that only cases of officers in the Senior Administrative
grade and above should be scrutinised by the Central Vigilance Commis¬
sion. Cases of other officers should be left to be dealt with by the Ministry
of Railways themselves.

(Para 69)

(32) In our view what is provided for in Article 311 of the Constitu¬
tion is a time-honoured protection. We would, therefore, abstain from
recommending that Article 311 of the Constitution be amended.

(Para 91)

(33) We do not sec any reason why the penalties not provided for in
Article 311 of the Constitution should be so treated in the Railway Servants
Discipline and Appeal Rules. We would urge the Railway Board to take
immediate action so that for the imposition of penalties other than those
provided for in the Constitution, a summary and simplified procedure is
adopted.

(Para 92)

(34) We reiterate that wherever there is scope for eliminating delays
in the processing of cases of disciplinary action in departmental offices,
such delays should be eliminated and the procedure for watching the pro¬
gress of such cases in departmental offices streamlined.

(Para 93)

(35) It occurs to us that the disciplinary inquiry can, with advantage,
be conducted by special inquiry officers trained and deputed exclusively
for this purpose. These officers should form a part of the Personnel Branch
and should be chosen with great care so that they have a good knowledge
of the Discipline and Appeal Rules and where possible also some know¬
ledge of law as well as legal procedures.

(Para 95)

(36) We are of the view that senior supervisors should be recognised
as junior members of management. With a view to restoring the position
and authority of senior supervisors and strengthening the measure and
quality of their supervision over the working of staff, we offer the follow¬
ing suggestions:—

(>) It is desirable that senior supervisors are always consulted in
regard to the promotions and transfers of staff in their charge,
(ii) The number of grades of senior supervisors should be reduced.
As far as possible, most of the grades of senior supervisors
should be selection grades. They should be so devised that the
top of one grade is well below the starting point of the next

185

grade so that when a person is promoted to the next grade,
there is a substantial rise in emoluments. The present grades
were last considered by the Second Pay Commission a decade
ago. Though a wholesale review of the grades of senior super
visors is a matter to be dealt with by a future pay commission,
as an interim measure, we would like to suggest that the top
most grade of senior supervisors should be appropriately raised
keeping in view the present day conditions as also the scales
of senior supervisors in comparable posts elsewhere.

(iii) Wherever there is a large concentration of stall working under
a senior supervisor, the post should be upgraded to gazetted
status. Class II. We. would leave it to the Railway Board to
work out the implications of this scheme in consultation witli
the Railway administrations. As a broad guideline, we suggest
that wherever there is a concentration of say 300 to 500 men, the
status of supervisors should be raised to Class II. We w'ould,
however, stress that special care should be taken in selecting the
right type of men whenever it is decided to upgrade the posts
of senior supervisors to Class II category. It would in our view
be advisable to retain the present designations. If at all any
modification is called for, we recommend that for the sake of
uniformity the upgrading posts may be redesignated as Yard
Superintendent, Shop Superintendent, Loco Superintendent,
Station Superintendent, etc.

(iv) The most constructive step in fortifying the self-confidence of
senior supervisors and discipline among staff would, in our
view, be to create conditions whereby it becomes known right
down the line that the action taken by the supervisors on the
spot will ordinarily receive the support of the administration.

(Para 105)

(37) (i) It must be appreciated that reservation of posts in favour of

a community or a group of people must not be at the cost of
overall efficiency of the administration.

(ii) At the stage of initial recruitment there is no objection to
reservation of quotas for scheduled castes and scheduled
tribes. At the promotion stage, however, such reservation can
give rise to a feeling of inequity among the staff who have
already put in several years of service.

(iii) We consider that the Government should now review the
question of reservation of quotas for, and the weightage given
to, scheduled castes and scheduled tribes at the promotion
stage in the context of the present-day conditions and in the
light of the evidence referred to by us in this matter.

(Paras 109 & 110)

(38) We recognise that if a vast organisation like the Railways is to
function efficiently, it must have in its superior cadres men of the best
calibre available. Obviously, the objective is unlikely to be achieved unless
service conditions are such as to attract talented voting persons.

(Para 118)

(39) (i) We realise that it is not our function to spell out the details
of the proposals for improving the pay scales and prospects of officers, but
we are anxious that the general feeling of discontent should be cleared up
and the cadre structure of railway officers should be so recast that from the

VT '-T (I'D 3MofRa ilway 14

186

point of view ot prospects, the best talent is attracted to the Railway
services.

(ii) We understand that the Administrative Reforms Commission
went into this matter in considerable detail and have made certain recom¬
mendations. We have no doubt that the Government will consider these
recommendations closely, appreciating the need for urgent action. We would,
on our part, urge them to devote their attention to this problem without
loss of time.

(Para 119)

(40) We find that there is a general awareness in ihe Railways of the
problem of officer-staff and supervisor-staff ratios and tire inadequacy of the
present ratios. We would like to leave it to the Railway Board and the Rail¬
way administrations to work out after proper scientific study the appro
priate ratios between officers and the staff. We think that to improve the
ratio, the matter woujd have to be tackled from both ends, that is, to
strengthen the number of officers and supervisors wherever required on the
one hand and to make suitable adjustment in the number of men in the
various wings on the other.

(Para 12:5)

(41) The present set-up on the Railways has no doubt stood the test of
time but in the present situation with the increasing tempo of traffic, in¬
crease in manpower and complexity of management problems, a time has
come when serious thought should be given to streamline the command
structure on the Railways to deal with the challenges of the present and the
future. One way in which this may be accomplished is for the organisational
structure to be subjected to an expert study.

(Para 124)

(42) We refer to the various reasons adduced for increase in unproduc¬
tive paperwork. We are aware that this state of affairs is not peculiar to the
Railways and also that the reasons are hardly likely to lend themselves to
an easy solution. But we consider that consultancy in the matter of office
procedures as also in other fields may open up the management to fresh and
useful ideas.

(Paras 125 and 127)

(43) We suggest that the Railway Board and the Railway administra¬
tions should investigate whether any further devolution of authority and
delegation of powers would not be conducive to a reduction in the volume
of correspondence and paperwork. We would, however, strike a note of
caution that any delegation of powers can have utility only if the authority
to whom the power is delegated is allowed to exercise the power and
obviously it will be rendered ineffective if distrust in the man on the spo!
tontinues to prevail.

(Para 128)

(44) (i) We consider that in a vast organisation like the Railways which
employs more than a million workers, labour science research would not be
a mere refinement or a needless sophistry but an organ of considerable prac¬
tical utility.

(ii) We find that even with the highly limited objectives which (lie
Psycho technical Cell in the Railway Board has set for itself, the progress
which it has made so far has been insignificant.

187

(iii) We consider that the scope of such studies should be enlarged so
that it is not confined merely to building up of some aptitude tests but
encompasses the broader problems of the socio-psychological make-up of the
railway worker and of human engineering which have particular reference
to rational safe working on the railways.

(iv) We commend for the consideration of the Railway Board that they
ascertain from the Railway Labour Science Research Institute on the
Japanese National Railways and from similar institutes which the railway
systems in other advanced countries may have established, the fields of in
vestigation which they undertake and the techniques adopted and there¬
after draw up an integrated programme of socio-psychological study and
research.

(v) It occurs to us that the Universities and other institutes and
foundations in the country engaged in pursuits of this nature may be in a
position to aid the railways in such studies.

(Para 131)

Chapter III—Training of staff

(45) We found the arrangements for general-purpose training of staff
generally adequate except for a few isolated instances of shortcomings in
the facilities for training like inadequacy of hostel accommodation at the
Zonal Training Schools at Alipurduar and Tiruchchirapalli, and non-supply
of accident enquiry reports of the Additional Commissioners of Railway
Safety to Zonal Training Schools. It was also indicated to us that there was
ample scope for intensifying the training of drivers, train examiners, trade
apprentices, etc. at Jamalpur.

(Paras 133-134)

(46) We were struck by the absence of a Zonal Training School on the
South Central Railway. We consider it essential that the setting up of a
Zonal Training School and the creation of training facilities on the South
Central Railway is not delayed further.

(Para 135)

(47) We consider that with the introduction of modern highly sophisti¬
cated equipment in various fields of railway operation, it has become impe¬
rative that the staff entrusted with the responsibility of handling, operation
and maintenance of the equipment are imparted adequate and intensive
training.

(Para 136)

(48) We are of the view that an approach to training which aims at
leaving the trainee to his own resources is neither systematic nor scientific
and we hope that the Railways would shed their complacency regarding the
present practice of imparting indifferent training to electrical signal main
tainers.

((Para 139)

(49) We strongly urge the setting up of a well-equipped training centre
on each Railway for the training of electrical signal maintained needed for
the maintenance of modern signalling equipment. These centres should be
adequately equipped with the working models of modern signalling instal¬
lations and lessons should be given on basic techniques, installation and
maintenance. Curricula should be framed for both initial and refresher
training.

(Para 140)

188

(50) We considei dm the question of recruitment, training and grades
of signalling staff calls for an urgent decision and would be in the interest
of safety in operation which modern signalling equipment aims at provid
ing.

(Para 141)

(51) We suggest that the panel operators to be employed for operating
route relay installations, centralised traffic control etc. should be trained in
the centres set up for training of signal engineering staff.

(Para 142)

(52) We feel that before panel operators are employed on the operation
of modem signalling equipment, competency certificates should be issued to
them by authorised officers of operating and signalling departments jointly
after proper test.

(Para 142)

(53) It is suggested that mechanical and electrical cadres of signalling

staff should be combined and integrated into a single cadre. This step
would, in our view, result in closer inspection and better maintenance of
signalling equipment. (Para 143)

(54) We consider that the implementation of the following suggestions
made to us would be a step in the right direction: —

(i) A centralised training school should be set up to train supervi¬
sory staff of all Railways in inspection and maintenance of elec¬
tric rolling stock and traction equipment on the lines of the
Signal and Telecommunication School at Secunderabad.

(ii) Each Railway having electric traction should have a school for
training of artisan staff and for giving them refresher training.
This school should also cater for the training of staff employed
for the maintenance of general electric and train lighting
services.

(Para 145)

(55) We suggest that the Railways should create adequate facilities in
their System Technical Schools or alternatively in schools attached to the
diesel locomotive sheds for imparting proper training to the staff employed
on the maintenance of diesel locomotives.

(Para 146)

(56) (i) Though several Railways have introduced the pattern of train¬
ing of diesel and electric drivers through training in simulation cabs, we
feel that a greater degree of uniformity in this important ‘conversion
training’ is necessary. Detailed curricula of training tinder Indian conditions
should, in our view, be drawn up after a careful study.

(ii) We commend to the Railways the suggestion that the techniques
adopted for training the drivers for diesel and electric locomotives should
lie on lines similar to those employed for training of aircraft pilots. In our
view, simulation training should be organised with great care if a crash pro¬
gramme of converting steam locomotive drivers into diesel or electric loco¬
motive drivers is to be gone through.

(iii) We consider that the driving staff for diesel and electric locomo¬
tives should have adequate educational and technical background. Where
they have to be selected from amongst steam locomotive drivers, they must

be screened carefully and considerations of seniority etc., should not be
allowed to come in the way of proper selection of men.

(iv) It is necessary that the staff selected for working diesel and electric
locomotives should be put through a systematic course of training under
(he guidance of fully trained and experienced personnel. The ‘conversion
(raining' given to steam locomotive drivers would, unless it is on a systema¬
tic and properly directed basis, he hardly adequate to accomplish an efficient
change-over.

(Paras 147 to 150)

(57) We suggest that the Railways should keep a special watch on the
nature of lapses on the part of the diesel and electric locomotive drivers
which result in accidents as these may be useful pointers to the shortcom¬
ings in their training.

(Para 151)

(58) We are of the view that ihe aptitude tests which have been evolved
or are in the process of being evolved by the Psycho-Technical Cell should,
in the first instance, be applied to the categories of electric and diesel loco¬
motive drivers before selection or recruitment.

(Para 151)

(59) We stress that the success of mechanised inspection and mainte¬
nance of track would depend on the availability of suitable personnel for
maintaining and handling the equipment no less than on the equipment
itself.

(Para 152)

(60) It would, in our view, be advantageous if an integrated pro¬
gramme which provides intensive training to the staff in mechanised main¬
tenance and inspection of track hoth in the works of the firm manufactur¬
ing the machines as also in the field is evolved.

(Para 153)

(61) (i) We agree that scientific approach should be inculcated in staff
dealing with long-welded rails through initial training and frequent re¬
fresher course. This, in our view, should also hold true in case of staff deput¬
ed for maintenance of track hv measured shovel packing.

(ii) We suggest that necessary facilities should be built up on each
Railway and, as a first step, instructors for these jobs should be trained by
the RDSO or at a suitable centralised training centre.

(Para 154)

(62) We feel that the setting up of a school for the training of staff in
(he use of ultrasonic flaw detectors should receive high priority.

(Para 155)

(63) (i) We feel that necessary facilities for imparting training in
scientific methods of materials management will have to be created on the
Railways or in a centralised institution.

(ii) We suggest that the possibility of making use of the Indian Rail
ways School of Electrical and Mechanical Engineering, Jamalpur or other
similar institutions or of developing alternative facilities for training ol
stores personnel be examined.

(Para 157)

190

(64) We consider it essential that training in service should be inten¬
sive, regular and should be more job-oriented than theoretical as is the case
at present.

(Para 158)

(65) We emphasise the need for the proper training of inspectors and
other supervisors since ultimately the interpretation of what the administra¬
tion requires its workers to do rests in the hands of these men who are in
direct contact with the workers. On the quality of these men depends not
only the image of the administration in the eyes of the workers but also the
quality of output which would ultimately emerge.

(Para 160)

(66) It is of vital importance that specialised courses are arranged for
inspectors and supervisors both to develop their outlook and to make them
professionally more competent. Indeed, this matter is so important in our
view that it should receive the attention of, and may be watched by, the
General Managers themselves. We have no doubt that those who undergo
such specialised courses would emerge as better inspectors and better super¬
visors.

(Para 160)

(67) We understand that arrangements were made for conducting a
centralised course in supervision and management in the Zonal Training
School at Chandausi. Judging from the fact that in the last four or live
years only four courses were held, it is doubtful if the matter is receiving
the attention which it deserves. We are also doubtful if the facilities and
the calibre of instructors at Chandausi are such as to make it possible to
orient the course with an all India outlook.

(Para 161)

(68) We suggest that refresher training of senior supervisors belonging
to civil engineering, transportation and mechanical engineering depart
ments should, like those of the signal engineering department, be arranged
at the respective all-India training centres at Poona, Baroda and Jamalpur.
Specialised courses of three to four weeks duration organised at regular
intervals should make it possible for all inspectors and supervisors to be
trained and oriented reasonably adequately within a short span of time. If
the existing facilities at these institutions are inadequate, it would be well
10 augment them suitably.

(Para 162)

(69) The following suggestions were put forward in evidence which
merit consideration:—

(i) An experienced officer should be specially selected and put in¬
charge of the probationary officers when they come on the open
line to pick up the actual work they have to do so that they
are not left to their own resources to pick up what they can.
There should be a wholetime training officer deputed for the
purpose. We understand that a scheme has been started for pro-
Dationary transportation officers at Asansol where young trainee
officers receive field training under the guidance of an experienc¬
ed wholetime officer. We welcome this step and urge that simi¬
lar steps should be taken for trainee officers of other depart¬
ments.

(ii) Senior seasoned officers should be deputed to go as roving in¬
structors. They should spend some time with the officers, even
upto the Divisional Superintendent’s level, and guide them in
their problems as friends rather than as critics.

(iii) The officers and supervisors of technical departments should be
so trained as to receive specialised training in particular trades
while acquiring broad knowledge of railway working in other
fields.

(Para 163)

(70) We consider that a young officer is an asset on whom no investment
is too heavy to make him professionally competent and a good manager of
men.

(Para 164)

Chapter IV — Other staff matters

(71) (i) We are of the view that the conditions which brought about
the setting up of the Railway Service Commissions do not exist any longer.

(ii) We suggest that recruitment of staff in all mass categories and
semi-mass categories should be left to the Railway administration and the
recruitment should be decentralised to be made at the divisional level.

- (iii) We consider that it will be adequate if a Committee of two officers
is appointed by the Divisional Superintendent to make the recruitment
of staff in various categories at suitable intervals.

(iv) We further suggest that categories of staff other than mass cate¬
gories and those for which either the minimum qualification is a univer¬
sity degree or a technical degree or diploma or which are otherwise specia¬
lised as for example, nurses, school teachers, printing press staff, etc. may
continue to he recruited through the Railway Service Commissions.

(Para 170)

(72) (i) We consider that for staff engaged in the operation and
maintenance of diesel and electric locomotives, modern signalling equip¬
ment, tie-tamping machines, complicated hydro-electric and electrical
equipment in the workshops etc. a good basic education and certain mini¬
mum technical qualifications are essential so that the staff who are en
trusted with the responsibility of operation and maintenance of modern
equipment are not raw and uninitiated hands but have an intelligent and
effective grasp of the equipment they handle.

(ii) We suggest to the Railway Board and Railway administrations
to evolve the minimum basic qualifications for each of these categories.
We have no doubt that in the present conditions, there would be no dearth
of men having the requisite qualifications.

(Paras 172 to 174)

(73) (i) In our view, the essential staff who should receive preference
in the allotment of houses should be such personnel as are liable to be
called for duty at any time at short notice or at odd hours and but for
whom train running would be immediately hampered.

(ii) Considering that the available accommodation is inadequate to
house even the more essential categories of staff and that it would ob¬
viously take a long time to build new quarters in significant number, we
would, first and foremost, suggest that the Railway Board should bring

192

about uniformity in the classification of staff as essential and non-essential.

(iii) Since even among the essential categories, priorities may be
different and since it may not he politic to deprive non-essential categories
of housing accommodation altogether, we suggest that a priority schedule
may be prescribed in more or less the same manner as a priority schedule
for allotment of wagons.

(iv) The first priority in housing should go to the running staff and
the second priority to train passing staff like station masters, switchmen,
cabinmen, shunting jamadars etc. Signal maintainers who are likely to
be called at night may also be included in the latter group. The policy in
regard to building of new quarters and their allotment should be based
on the priority schedule.

(v) Of the existing accommodation, as a rule, all quarters allocated
for essential staff should, on vacation, be allotted to essential staff keeping
in view the priority schedule. Of the other quarters falling vacant, 50 per
cent should be allotted to the essential staff so that a progressively higher
percentage of essential staff is housed in accordance with the priority
schedule laid down.

(Paras 179 and 183)

(74) It has been suggested that to the extent money is spent on
housing of staff, the Railway administration should get relief from pay¬
ment of interest on capital. In this manner, it may be possible to accele¬
rate the rate of building of quarters substantially and house the staff
within a few years. In our view, there is considerable strength in this plea
and we would urge the Government to give this matter their closest
consideration.

(Para 184)

(75) (i) We would suggest that the work of signal maintainers should
be properly job-analysed and if the nature and quantum of work is such
that they should be put on rosters of 8 hours or 12 hours, steps may be
taken accordingly.

(ii) Wherever the position is such that a signal maintainer who may
have been working during the day is often required to attend to failures
during night also, a more permanent solution of the problem would have
to he found since we have no doubt that in days to come, demands on
the time of signal maintainers would increase.

(Para 187)

(76) We urge that vigorous steps should be taken to ensure that 12
hours running duty is ordinarily the limit and that cases of running duty
exceeding 12 hours are brought down further and are an exception rather
than a rule.

(Para 191)

(77) It was observed by the National Federation of Indian Railway-
men that under the hours of employment regulations, a continuous worker
was required to perform 8 hours duty a day, but for payment of overtime
the basis of 54 hours a week and 231 hours in a month was adopted. We
think that the trade unions would already have brought up this matter
before the Railway administrations and the Railway Board. We, therefore,
leave it to the Railway Board to examine the contention of the Federation.

(Para 193)

(77a) (i) We are unable to see the merit of the arrangement under
which the assistant station master at stations manned by one station master
and one assistant station master is continually on night duty for months
and sometimes years. We urge the Railway administrations to go into this
matter closely and find a satisfactory solution.

(ii) In the absence of any other alternative, we are of the view that
it may be possible to re-roster the duty shifts of the assistant station master
and the station master so that the shifts change at midnight and 12.00
hours noon, the assistant station masters coming on duty at midnight.

(iii) On sections where traffic is very light and where there are such
stations, the Railway administrations may also examine the possibility of
scheduling the trains in a manner that the station is closed during the
period say from 22.00 to 04.00 hours so that the assistant station master
is not on duty right through the night as a permanent measure.

(Para 200)

(78) (i) We urge that the yardsticks prescribed for the provision of
amenities in the running rooms should be rigidly applied in order to en¬
sure that adequate facilities are available for the comfort of the running-
staff.

(ii) It is important from the point of view of safety of train operation
that running staff in the categories of drivers, firemen and guards should
not in any circumstance be deprived of adequate rest at the end of their
journey. The practice of travelling ticket examiners occupying beds in
the running rooms, either singly or in squads, should be stopped. We
would urge that wherever a complaint of this nature exists there should
be separate arrangements for accommodation of travelling ticket exa¬
miners, conductors, etc.

(Paras 202 and 203)

(79) (i) We emphasise that when a decision is taken to provide uni¬
forms to certain categories of staff, non-supply or irregular supply of uni
forms thereafter is a source of needless discontent and frustration in the
staff.

(ii) There were several complaints to the effect that the uniforms
supplied were ill-fitting. An ill-fitting uniform is a stigma on the manage¬
ment. We have a feeling that not much thought is given to this matter.
We do not see why the railway or its suppliers, should not find it possible
in supply to each employee a uniform which fits him more or less to size.

(iii) We are also of the view that categories of staff whose work is
entirely outdoor may be provided with raincoats. Overcoats may also he
provided to staff in the categories of shunting jamadars and gangmen
where the need for providing these seems justified.

(Paras 206 and 207)

Chapter V— Rules, Rule Books and, Manuals

(80) (i) We would welcome a revised set of rules which provide for
the technological changes that have taken place in recent years and suit
the requirements of the growing system and from which all the out-dated
rules have been weeded out.

(ii) We recognise that with the weeding out of superfluous and re¬
dundant rules and cutting out of dead-wood, renumbering of rules would
be inescapable to maintain continuity. If, however, some wav can be found

194

to retain the old numbers for at least the more important rules like those
pertaining to giving permission to approach, taking off of signals, etc.,
it would certainly impose a much lighter burden on the staff than if they
arc faced with a set of. rules in which there is no shred of similarity.

(iii) We realise that the work of revision of rules has already gone
sufficiently ahead. We, therefore, leave it to the Railway Board to see to
what extent the general arrangement of this basic vocabulary of staff
concerned with train running can be retained.

(Paras 210 to 213)

(81) (i) In our view, the justification for publication of the statutory
rules and codes in bilingual form exists only when they are required for
reference but when a rule book is required to form the personal equip
ment of the staff, insistence on its being bilingual is ill-conceived.

(ii) We suggest that Rule Books intended to be for the personal use
of staff should be printed in English, Hindi or in the regional language as
separate editions and the staff may be supplied these books according to
their requirements.

(Para 215)

(82) (i) We recommend that arrangements may be made for the com
pilation of unified manuals on mechanical engineering and electrical
engineering applicable to all the Railways.

(ii) We consider it necessary that efforts are made to see that there is
as wide a ground of agreement among the Railways as possible in regard
to the practices and procedures proposed to be unified and incorporated
into the manuals.

(Para 216)

(83) (i) We have seen the handbooks brought out by the Railway
Board in recent years for different categories of staff, viz., station masters
and assistant station masters, guards, switchmen and cabinmen, levermen
and pointsmen, gatemen, yard staff and permanent way staff. These hand¬
books appear to us useful and interesting.

(ii) We recommend that similar handbooks should be brought out
for the use of drivers, train examiners, route relay interlocking maintainers
and panel operators, centralised traffic control maintainers and panel
operators, staff concerned with maintenance and operation of diesel and
electric locomotives, train lighting staff, etc.

(Paras 217 and 218)

Chapter VI —Permanent Way

(84) We consider that for providing a modernised track structure
60 Kg. rails should be laid not only on sections carrying more than 20
gross million tonnes traffic but also on other trunk routes where the den
sity of traffic may not have reached that level but may be rapidly increasing.

(Para 221)

(85) The length of track so far laid with long welded rails on the
Indian Railways is not a significant achievement. We hope that adequate
and timely action will be taken so that the Indian Railways go in for
long welded rails extensively.

(Paras 226 and 228)

195

(86) We reiterate the need for a firm and long-term integrated plan
lor the procurement of concrete sleepers as well as matching elastic
fastenings so that the plan for rhodernisation-of track does not suffer on
ihis account.

(Para 229)

(87) We consider it important to stress that unless adequate steps are
taken to ensure that the manufacturers of elastic fastenings fulfil their
commitment, it may not be possible to put the prestressed concrete
sleepers to use. A situation in which elastic fastenings lag behind the
supply of concrete sleepers or vice versa would be indicative of inadequate
planning and may result in infructuous expenditure.

(Para 231)

(88) During the course of inspections carried out on shon lengths
of track on some of the Railways, we found that:—

(i) Qften sleepers were out of square, keys of steel-trough sleepers
were driven rather indiscriminately, sleeper spacings were not according
to drawings, some rail joints had nearly run on to joint sleepers due to
creep, and correct templates had not been used, the spiking being any¬
thing but trapezoidal ;

(ii) the work of providing guard rails op girder bridges on some
small spans of prestressed cement concrete girders had yet to be completed.
Instead, guard rails had been provided on earth cushioned arch and flat-
top bridges and culverts which, in our view, serve no purpose. Nor were
the guard rails fixed according to the instructions issued by the Railway
Board. Walk-ways made out of unserviceable sheets had not been provided
on all the girder bridges; and

(iii) Gate lamps were without masking arrangements. The road ap¬
proaches were steeper than the limiting grade of 1 in 20 at ‘G’ Class level
crossings. The discs fixed to gate shutters were not painted bright red and
the catches and stops for. gate shutters were ineffective.

(Paras 238 to 241)

(89) Even though these observations are limited in character, it is
evident that a lot needs to be done to improve the general standard of
maintenance of track.

(Para 242)

(90) It is necessary that the staff entrusted with the maintenance of
track are enjoined to adhere to the instructions laid down if the state of
the track is to improve. We also consider that conditions have to be
created to cope with the present and future trends of heavier train loads
■ and heavier rolling stock running at higher speeds.

(Para 242)

(91) In our view, the programme of track maintenance round the
year should aim at the following: —

(i) The sequence of track maintenance operations should be
arranged according to the climatic periods so as to obtain the
best results;

(ii) A reasonable turn over per unit labour for each specific track
maintenance operation should be ensured. Scientific work
studies of the various operations would, in our opinion, yield

useful results.

(Para 242)

(92) We suggest that the mechanics of ‘renaissance' in track mainte¬
nance as enunciated by the South Eastern Railway be tried over some
sections in order to get a correct appraisal of its value and the results
placed before the Track Standards Committee.

(Para 244)

(93) (i) We consider that the screening of ballast between two sleepers
should be done at every quarter of a kilometre taking care that the cores
under the sleepers are not disturbed. The results should then be plotted
on a diagram showing the clean stone ballast content in the track.

(ii) The ballast diagrams should be revised once in five years or so.

(iii) The engineers should test check the requirements of ballast by
permanent wav inspectors on the basis of ballast diagrams.

(Para 245)

(94) We suggest that wherever the content of clean ballast falls below
35 per cent in the track, complete reballasting should be carried out.

(Para 24(1)

(95) We suggest that the percentage of unserviceable sleepers in the
track should be reduced to the barest minimum. Eventually, any sleeper
that is considered spike-killed or otherwise unserviceable should be
promptly renewed.

(Para 247)

(9(1) There appears to be need for having a uniform conception of
when a bridge is to he treated as distressed on condition basis or on
h yd ro logi cal con sid era t ion s.

(Para 248)

(97) We urge that bridges considered distressed should be speedily
rehabilitated on a programmed basis, a higher priority being given to
structures which require to be rebuilt on age aim-condition basis.

(Para 249)

(98) We reiterate the factors which should be the basis for determin¬
ing gangstrengths: —

(iy Optimum Mandat'd of maintenance for each classification of
track based on the maximum speed and traffic density;

(ii) schedule of work ‘round-the-yenr’ for the required optimum
standard of track maintenance ;

(iii) assessment of the number of man-days, based on average out
turn of work for each operation per man-day, to conform to
the specified ‘round-the-year’ schedule;

(iv) additional strength required to cover such factors as require
extra attention over and above the normal; and

(v) the optimum length over which a given gangstrength can carry
out effectively and without default every track maintenance
operation.

(Para 250)

(99) We suggest that the Track Standards Committee should go into
the matter of gangstrengths and evolve a system of basic strength units
according to track classification. These basic strength units may be aug¬
mented bv coefficients based on local characteristics of various sections

197

of the Railways, The Railway Board should be guided by the advice ol
the Track Standards Committee. We suggest that while evolving the basic
strength of a gang, the working and living conditions of gangmen should
not be ignored.

(Paras 251 and 252)

(100) We suggest that the Railway Board may consider the question
of procurement of an adequate number of curve correctors so that an
instrument is available for each division on the Railways.

(Para 250)

(101) After accurate reconditioning of each curve with special em¬
phasis on the transitional approaches, curve alignment registers
should be maintained showing therein the versine and superelevation at
each ‘station’.

(Para 257)

(102) The ‘stations’ should be marked in white paint on the inner
side of the outer rail and the superelevation on the inner web of the inner
rail.

(Para 257)

(103) General Rule 00 prescribes a speed restriction of 10 km.p.li.

on turn-outs. The Rule, as it stands, makes no distinction between the

various gauges nor does it make any reference to the angle of crossing,
the track structure or the type of locomotive. These are matters which
require considerable study and research to ascertain the stage at which
dangerous conditions are liable to occur and to lay down limits of safe
speed. We consider that General Rule 90 should be more specific and
should be revised in the light of such study and research.

(Paras 258 and 259)

(104) We consider that small and inexpensive devices like a magni¬
fying glass as well as a mirror can be provided for the use of gangs for

detecting flaws in rails wherever rail failures are frequent.

(Para 264)

(105) We consider that ultrasonic rail flaw detectors are essential for
detecting rail flaws and would urge that an adequate number of these
are made available for use on Railways. Annual testing bv ultrasonic rail
flaw detectors would, in our view, provide an effective practical check
though more frequent testing should be carried out where track condi¬
tions so warrant.

(Para 268)

(106) We suggest that from now on research and development of a
self-propelled ultrasonic rail inspection car should be taken in hand so that
before long each zonal Railway has one for use on its system.

(Para 269)

(167) We suggest that each case of rail failure, as it occurs, should re¬
ceive close attention of the administration by way of chemical analysis,
investigation of the previous history of failures of rails of the same type
and age and other cognate factors.

(Para 271)

198

(108) We note the decision of the Railway Board to extend the method
of measured shovel packing in the light of experience gained but would
like to point out that if a section of the track is subjected to mechanised
maintenance in the first instance, its subsequent maintenance by measured
shovel packing is more satisfactory and lasts longer. We would like the
Railway Board to bear this in mind while planning for extending the use of
measured shovel packing.

(Para 275)

(1011) In regard to the general adoption of directed track maintenance,
we consider that: —

(i) It is an essential prerequisite of directed track maintenance that
suitable means of transport should be available to convey gang-
men and their equipment to and from the site of work;

(ii) the benefit from concentration of effort over a selected length of
a few miles of track which directed track maintenance involves
has to be carefully weighed against the disadvantage due to the
withdrawing of gangmen and their supervisors on many other
sections of the track to form a part of the scheme and the re
sultant longer intervals between inspections and slackening of
supervision; and

(iii) in respect of optimum ganglength, a four-mile length of single
tine has, for some years, been a limit; conditions today, if any¬
thing, indicate the necessity for shorter rather than longer
lengths for inspection and supervision to be effective.

(Paras 278 and 279)

(110) (i) At present, the Indian Railways have only a limited number
of ‘on track’ mechanical tamping machines and the indigenous capacity for
their manufacture is unlikely to be adequate in the years to come to meet
the requirements of Railways if they were to adopt mechanised mainten¬
ance of track extensively.

(ii) We feel that the factor of foreign exchange component in the cost
ol mechanical tie tamping machines should not deter the Indian Railways
from working out a programme for switching over to modern methods of
track maintenance on its trunk routes and main lines,

(111) The programme should take into consideration the economics as
well as the safety aspect of mechanised maintenance and of other modern
means of maintenance of track so that an integrated plan is worked out
and the actual effect of modernisation is felt in the next few years.

(iv) Clean stone ballast for an adequate depth below the sleeper is a
prerequisite for the working of an automotive tie tamper. This condition
obtains on some sections of the trunk routes but, by and large on the main
and branch lines the mixture of ‘muck’ with stone ballast is considerable.
We feel that it will take some time before all sections are made fit for
mechanised maintenance.

(v) The use of automotive tie-tampers will also involve revised spacing
ol joint sleepers.

(vi) A concomitant of mechanised maintenance is the availability of
traffic blocks on busy sections so that automotive tie tamping machines can
be put to optimum use. The train time tables on such sections should be
framed in a manner that a block of time of about four hours can without.

199

difficulty be allotted for mechanised maintenance of track and for mainten¬
ance of other equipment.

(Paras 280 to 282)

(111) (i) In our view, no less important than the maintenance of track
is the inspection of track by modern methods.

(ii) We had, in Part I of our Report, expressed concern over the delay
in manufacture of track recording cars. We feel that if Government are
unable to manufacture these test cars within a reasonable time, they should
not hesitate to obtain them from elsewhere.

(iii) We consider it necessary that improvements should be effected to
enable the track recording car to record all track irregularities at higher
speeds accurately.

(iv) We are of the view that Hallade track recorder is a useful instru¬
ment for testing the riding qualities of the track at high speeds.

(v) We urge that steps should be taken to acquire track recorders in
adequate number so that each division has one to itself.

(vi) The divisional officers and staff should be encouraged to use these
instruments intensively and should be trained in the evaluation of the
results recorded by the instruments.

(Paras 283 to 285)

(112) We leave it to the Railway administrations to see if the special
reports submitted by the permanent way inspectors to the divisional officers
serve the purpose of giving the latter a fair idea of the section and of their
difficulties; if not, it might be useful to revive the six monthly report, if
necessary, in an abridged form.

(Para 286)

t (113) (i) We are of the view that in all eases permanent way inspec¬
tors and signal inspectors should be relieved of their stores charge and
should be held responsible only for the imprest issued to and required by
them for their day to-day work.

(ii) Where a permanent way inspector and a signal inspector are both
headquartered at the same station, the person entrusted with the mainten¬
ance of permanent way stores can be concurrently responsible for signalling
stores. At other places, separate arrangements may be made.

(Para 291)

Chapter VII — Level Crossings

(114) We reiterate what we had said in Part I of our Report that a
census every five years is necessary to determine whether an unmanned level
crossing is to be manned or a manned level crossing is to be upgraded.

(Paras 292 and 293)

(115) (i) We consider that norms should be laid down for the purpose
of deciding whether a case exists for manning an unmanned level crossing
or upgrading a manned level crossing.

(ii) A rigid yardstick or standard is not necessary. The yardsticks may
provide for deviations in the light of local conditions on the merits of each
cast: after taking into consideration the need for safety.

(iii) The existence of norms would lirstly provide broad guide-lines lot
lUc Railways to work upon and secondly would ensure uniformity of proce¬
dures at level crossings on the same or contiguous sections having more or
less the same quantum of road and rail traffic.

(Paras 5194 and 295)

(ll(i) (i) We are unable to see the merit ol a system in which certain
gates are manned by only one gateman.

(ii) We suggest that at ‘C’ class manned level crossings with only one
gateman, an appraisal of the traffic using the gate should be made speedily
and depending on the result, the Railway administration should decide
whether a case exsts for having two men at such gates or whether the gate
should be unmanned. In no case, in our view, should a gate remain with
only one man on duty all the 24 hours.

(Partis 297 and 298)

(117) We had suggested in Part I of our Report that a part of the Rail¬
way Safety Works Fund—to the extent of 10 per cent— should be made
available to the Railways in case a decision is taken to man an unmanned
level crossing or to upgrade an existing manned level crossing. We hope
that a satisfactory solution has since been found which would enable the
Railway administration to 1 draw directly from this Fund upto the extent
of 10 per cent for the above purpose.

(Para 299)

(118) We think that to save toad traffic from long and irritating deten¬
tion to the extent possible and at the same time to ensure safety, it is
necessary to have some kind of reliable communication between the gate-
man afc a mid-section level crossing and the station on one side or the other.

(Para 300)

(119) With a view to minimising detention to road traffic at level cross¬
ings within station limits, the station staff must be educated to see that
signals are not taken off much in advance of ilie approaching or the depart¬
ing train.

(Para 301)

(120) We suggest that whenever on sections equipped with multiple
aspect signalling lower quadrant two aspect signals protect midsection level
crossings, they should be replaced by multiple aspect signals. It is essential
that there should be uniformity in the type of signalling provided on a
section.

(Para 302)

(121) We are of the view that all important level crossings should be
provided with sympathetic barriers of the lifting type equipped with
eccentric wheels which actuate bells and flashing lights indicating to the
road users when the barriers are being lowered or raised.

(Para 303)

(122) (i) It would, in our opinion, be worthwhile experimenting with
automatic half-barriers to see if they can successfully take the place of
manned level crossings with due measure of safety.

(ii) We think that at least near about the cities where automatic light
signals are in use at road crossings and (he road users have got used to them,
the Railways may with advantage and without undue risk experiment with
automatic half-barriers.

201

(iii) We stress that while installing automatic half-barriers, conditions
should be created by which breaking the queues, and zigzagging by road
users is rendered difficult if not impossible. It may be necessary to fix small
raised and prouded blocks with a height of six to twelve inches in the
centre on both approaches of the level crossing for an adequate distance.

(Paras 305 to 308)

(123) We suggest that provision may be made for the prosecution of
those road drivers who disregard the automatic half-barriers in the same
way as a road driver is liable to prosecution if he ignores traffic lights.

(Para 310)

(124) (i) We stress that if the experiment with automatic half-barrier
is to be made a success, special care will have to be taken to guard against
vandalism and theft of ground equipment.

(ii) It is important that wherever such automatic half-barriers are
installed and are actuated by approaching trains, the installation works in
perfect order and safety is not endangered.

(iii) We feel that should the installation fail far too often, the respect
which the road user may have for the installation is likely to decline re
suiting in the experiment not proving a success.

(Para 311)

(125) (i) We are of the opinion that from now on the construction of
level crossings should be avoided wherever possible and reduced to the
barest minimum. A level crossing should be provided only when for some
unavoidable reason, it is not possible to have an over-bridge or an under¬
bridge.

(ii) We hope that the amount collected in the Railway Safety Works
Fund would be available to be utilised in future to avoid the necessity of
new level crossings particularly where such level crossings are expected to
have heavy road traffic.

(Para 312)

Chapter VIII —Signalling and Interlocking

(126) The techniques of signalling have advanced today to an extent
that it is possible to eliminate the chances of falibility of the human
element to a degree not conceived of a few decades ago.

(Para 313)

(127) We remarked in Part I of our Report that the progress in the
introduction of modern signalling on the Railways had been slow.

(Para 314)

(128) (i) We find that of the total capital expenditure on the principal
categories of developmental works undertaken by the Railways, about five
per cent only fell to the share of development in signalling. This, in our
view, is inadequate.

(ii) We consider that the imbalance reflects not merely a lack of ap¬
preciation on the part of the Railway administrations of the role of modern
signalling from the point of view of safety but also a lack of realisation of
the fact that unless signalling keeps pace with developments in other fields,
Sf/J(N)3Mof Railway -13

202

the Railway administrations would be unable to put to the fullest possible
use their growing assets.

(Paras 316 and 318)

(129) (i) The hopes which the Railways entertained about the private
sector, to whom they had turned somewhat belatedly, developing indige¬
nous manufacture of sophisticated signalling and due to which they fore¬
went development of capacity in a workshop of their own have not mate¬
rialised. At the same time these expectations seem to have conditioned their
thinking so as not to go in for imported equipment.

(ii) We urge that without any further loss of time, a firm plan integ¬
rating the requirements of the Railways, the indigenous resources available
and the imports needed should be drawn up with bolduess and vision for
the next five to ten years and the programme of each year should reflect the
attention which modern signalling deserves but which it has not quite re¬
ceived in the past.

(Para 319)

(130) We recommend that.on sections wh,?y,e electric power is avail¬
able, colour light signalling should be provided as rapidly as possible.

(Para 321)

(131) We consider that a rigid check should be exercised on the quality
of lenses and bulbs used in colour light signals.

(Para 322)

(132) We urge that the Railways explore the possibility of switching-
over to electric lighting of semaphore signals wherever it is feasible and
that economic considerations should not be allowed to stand in the way
where the question of improved lighting and visibility of signals is con¬
cerned.

(Para 324)

(133) We suggest that a more progressive policy of providing multiple-
aspect signalling at stations not only on trunk routes but also on main
line routes should be followed.

(Para 325)

(134) As an interim measure, we consider the separation of the warner
signal from the outer signal on some sections and placing it at a distance
outside the outer signal a step in the right direction but stress that the
ultimate objective should be to go in for multi-aspect signalling on such
sections.

(Para 326)

(135) (i) We hope that the results of braking distance trials are notv
available and would sooti be reflected in the resiting of signals.

(ii) The minimum sighting distance for the first stop signal without
pre warning in two-aspect lower quadrant territory should be such that
the driver is able to observe and obey the signal in time. For a long while
now, the need to resite signals has been linked up with braking distance
trials. We urge that this matter which seems to have been long delayed
should receive the urgent attention of the railway authorities.

(Paras 327 and 328)

203

(136) (i) We understand that at f a cost of a small amount of foreign
exchange it would be possible to import suitable reflective material like
scotchlite for use on sighting boards. We consider that in matters which
involve safety, considerations of foreign exchange should not be allowed
to come in the way.

(ii) We think that in addition to sighting boards, such reflective mate¬
rial may be used with, advantage on whistle boards, road signs on the
approaches to level crossings, speed and caution boards and other indica¬
tion boards which ordinarily are not lit at night.

(Paras 329 and 330)

(137) We suggest that action should be taken to see that the types of
block instruments in use on any one Railway should be reduced to the
minimum. It would be advantageous to have one type of block instrument
for use on double line and another on single line on each Railway.

(Para 331)

(138) We recommend that panel interlocking with colour light signals
may be provided at stations on electrified sections and on such non-electri-
fied sections where electricity is available.

(Para 332)

(139) We recommend that the pace of provision of route relay inter¬
locking should be accelerated not only to speed up operation but also to
enhance safety.

(Para 334)

(HO) We suggest that in yards provided with large route relay installa¬
tions, subsidiary signals which serve the purpose of calling-on signals may
he provided below the relevant stop signals with post type telephones to
save detentions to trains.

(Para 335)

(141) We find that so far the route relay installations provided at diffe¬
rent stations have been of different types having been installed in collabo¬
ration with different firms. This arrangement poses serious problems of
availability of spares and the need to stock a variety of equipment besides
training of staff. In our view, the need for standardisation of designs, speci¬
fications and requirements for future installations of this type is paramount.

(Para 336)

(H2) We consider that Centralised Traffic Control is an important
development to meet the demands, of greater safety and efficiency and we
hope that in future whenever due to an increase in the density of train
service on a single line section the question of creating additional capacity
is examined, the case for installation of centralised traffic control would be
duly considered keeping in view the additional safety factor which such
installation provides.

(Para 338)

(143) We consider that ‘train describers' which will simultaneously in¬
dicate the direction of movement should form a part of centralised traffic
control wherever it is installed.

(Para 339)

(144) (i) We cannot help expressing our doubts whether the Railways
are addressing themselves to the task of providing track circuiting with the
necessary sense of urgency.

£04

(ii) It appears to us that too much is being made of the shortage of
wooden sleepers and that this factor instead of being a source of anxiety
lias, in course of time, come to be a cause for complacency.

(iii) We feel that the difficulty in regard to the suitability ol concrete
sleepers in the yards would only apply to a few places and, by and large,
it should be possible to overcome such difficulty.

(iv) We have no doubt that with more energetic research and experi¬
mentation, it should be possible to evolve suitable alternatives and over
come the hurdles in extending the use of track circuiting.

(Para 344)

(145) We suggest for the consideration of the Railway Board the follow¬
ing guidelines and targets in respect of provision of track circuiting: —

(i) First priority should be given to run through lines at wayside
stations on the trunk routes and to all passenger lines at im
portant junctions on both the trunk routes and the main
lines. This work should be completed during a period of four
years.

(Para 347)

(146) Track circuiting must, in our opinion, cater for prevention of
side-collisions. With this end in view, in respect of track circuitng works
on run through lines in progress at present as well as programmed for the
future, the policy should be to track circuit the lines between the block-
clearance points. As for the run through lines which have already been
track circuited between fouling marks, the work of track circuiting between
block-clearance points should be taken up as soon as possible.

(Para 350)

(147) We suggest that the Railway Board should reconsider the ques¬
tion of use of Permali fish plates as insulated rail joints on track circuited
sections for high speeds in the light of the reported improvement in the
design and strength of Permali fish plates.

(Para 358)

(148) (i) We feel that provision of Automatic Train Control is a matter
on which there should be little diversity of opinion. As a means to prevent
accidents, it is only second, if even second, in importance to track circuiting

(ii) We consider that the lines on which speeds of 100 kra.p.h. or over
are permitted should be provided with Automatic Train Control and it
should cover all trains including goods trains running on the section. A
scheme of priorities should be worked out for trunk routes.

(iii) We are conscious that owing to financial considerations, the instal¬
lation of Automatic Train Control would have to be proceeded with on
a phased basis but the phasing too must be done with a sense of urgency.

(Para 366)

(149) We have been given to understand that the Automatic Train
Control equipment being installed in the suburban sections in Howrah
area ensures that a driver passing an automatic signal at 'on’ must keep the

205

speed of the train below 15 kra.p.h. upto the next automatic signal failing
which a warning is sounded for five seconds and thereafter automatic ap¬
plication of brakes takes place. We consider that this type of Automatic
Train Control should be extended to other automatic sections in the
Bombay, Calcutta and Madras areas.

(Para 368)

(150) We feel that it is high time to undertake research and develop¬
ment in regard to continuous cab signalling, however elaborate or expensive
this may be so that a greater degree of immunity from accidents can be
achieved on sections on which high speed trains run.

(Para 369)

(151) (i) For items for which the Railways depend on the private sector
for supply, the effort should be to encourage more than one reliable source
so that not only are the benefits of competition obtained, but an eventuality
does not arise where the Railway administration may be left high and dry.

(ii) We understand that in countries like Germany, Japan and France,
two or three firms of repute who are prepared to invest money in research
and development and who have adequate quality control are given assured
orders for manufacture of sophisticated signalling equipment. We suggest
that the Railway Board develop their thinking along these lines.

(Para 371)

(152) We understand that qualitatively, the indigenously manufactured
conventional signalling equipment has not come up to the required stand¬
ard. We suggest that the Railway administrations would be well advised
to give orders to two or three selected firms of repute so that these firms get
interested in maintaining the requisite standards in the manufacture of
equipment.

(Para 372)

(153) (i) We were told that often when disconnection notices were
presented to the operating staff for disconnecting the gear for maintenance
purposes, such notices were not accepted on the plea of heavy train work
and the possibility of detentions to trains. The problem assumes great
importance at busy stations where the signalling gear is relatively more
intricate and needs intensive maintenance.

(ii) We suggest that the whole problem of maintenance of signalling
gear should be thoroughly examined and a practicable and safe procedure
evolved so that the necessary ‘time blocks’ are available for the mainten¬
ance of signalling gear without much difficulty. Provision for this should
in our opinion be made at the time, the time-table of a section is being
made.

(iii) By making provision in the train time-table for an integrated
maintenance programmes, the maintenance not only of signalling gear but
also of track by automotive machine wherever in use and of other over¬
head installations at stations and on sections could, with advantage, be
undertaken in a coordinated manner.

(Paras 373 fc 374)

(154) We consider that the inspections of signalling gear should be
intensified and the periodicity of testing of signalling gear should be
suitably modified.

(Para 376)

206

(155) We suggest that a copy of relevant notes on joint inspections
of signals may be sent to the station for the reference and facility of ins¬
pecting officers visiting the station to enable them to see if the defects and
deficiencies pointed out in the joint inspection notes have been rectified.

(Para 377)

(156) We understand that a system of radio-patching in conjunction
with multi-channel VHF (very high frequency) and micro-wave system is
being used in order to improve the efficiency of the control lines and to
overcome the difficulties created by the interruption of control circuits.
We understand that the Railways have decided to run and man their own
line wires instead of depending on the Post and Telegraphs Department.
We consider these steps to be in the right direction and hope that these
would produce the desired results.

(Paras 380 & 381)

(157) We hope that soon the Railways will be able to develop tele¬
communication facilities on their system commensurate with developments
in other fields as we consider that the fullest use of the assets which the
Railways have developed in recent years and are developing can be made
only if adequate telecommunications are available.

(Para 381)

(158) In our view, it would be impossible to attain a high standard
of safety, efficiency and economy in working if those responsible for sanc¬
tioning the introduction of improved signalling methods, through ignor¬
ance or otherwise, fail to realise the true potentialities of modern signal
ling and continue to apply the conventional yardsticks of financial justifi¬
ability to safety works. To that extent, the present day concept of financial
viability of investment needs to be modified particularly in respect of
signalling projects.

(Para 382)

Chapter IX —Motive Power

(159) (i) We would strongly recommend that the examining fitters at
the incoming pit are chosen carefully after testing them in their profici¬
ency and ability to read and write.

(ii) Booking of repairs by the driver and the examining fitter must
be spot-checked from time to time by visiting mechanical officers and
inspectors and other supervisors.

(iii) The loco foreman too should, in our opinion, be in a position to
make spot-checks at least twice or thrice a week.

(Para 385)

(160) We suggest that whenever officers of the mechanical department
inspect the incoming inspection pits, they must in particular check the
deficiencies in respect of lighting, drainage, cleanliness, availability of
tools, etc.

(Para 386)

(161) We recommend that test-checks at the outgoing inspection pit
should be intensified.

(Para 387)

(162) (i) We consider it important that there should be no disparity
in the concept of repeated bookings as understood by the different Rail¬
ways. The definition of repeated bookings should be standardised.

207

(ii) li would also, in our view, be useful if the form of tfie repeated
booking register i& standardised for use on all the Railways instead of
each Railway following its own system.

(Para 389)

(163) The liriiited survey which wd have made in respect of repeated
bookings shows that there is slackness in the sheds in attending to booked
repairs. There is considerable scope for improvement.

(Para 391)

(164) We consider that it would be salutory step if data in regard
to repairs booked repeatedly in respect of certain selected parts of a loco¬
motive are sent by the Divisional Mechanical Engineer periodically for
the attention of the Chief Mechanical Engineer himself.

(Para 392)

(165) The fact that derailments take place due to defective wheels
and tyres lends some weight to the assumption that checking and record¬
ing pf tire wear on the tyres is not always done with care. We would
emphasise that greater attention should be paid to the gauging of wheels
and tyre profiles.

(Para 394)

(166) We suggest that the requirements of loco sheds fop provision
of wheel lathes should be speedily assessed and such wheel lathes should
be provided wherever justified without any loss of time.

(Para 395)

(167) (i) In our view, ultrasonic testing equipment is an essential re¬
quirement of each major locomotive shed.

(ii) It is necessary that, the intervals a't which the exles and journals
of locomotives should be ultrasonically tested in ihe loco sheds is laid
down.

(Para 596)

(168) We consider it essential that the training of drivers in the
handling of steam locomotives should continue to be pursued with vigour
so that steam drivers reniain fully accomplished in their basic- profession.

(Para 397)

(169) We suggest that a detailed survey of the facilities, equipment
and machines, etc. available in and required for each loco shed on a Rail
way should be made by a senior mechanical engineer of the Railway and
effective action should be taken thereafter to make good the deficiencies.

(Para 398)

(170) Since the method adopted by the Northern Railway of main¬
taining in each loco shed a graph which shows at a glance the position of
schedule repairs to locomotives isi yielding satisfactory results, we recom¬
mend that its adoption on other Railways be considered with such modifi¬
cations as local conditions may require.

(Para 399)

(171) (i) We are disposed to think that the system of assigning engines,
to inspectors of mechanical department, ensuring as it would personalised
attention to the locomotives by a nominated inspector, would be con¬
ducive to better maintenance.

(ii) We suggest that the Railways on which the system of assigning
engines to inspectors of mechanical department does not exist should
examine the merits of this system and adopt it if they consider it advan
tageous.

(Para 400)

208

(172) We consider it necessary to emphasise that replacements oi
worn out machines should be effected as expeditiously as possible.

(Para 402)

(173) We suggest that where workshops are not adequately equipped
with modern scrag and load deflection testing machines, they should be
so equipped without further loss of time.

(Para 404)

(174) We strongly urge that all locomotive workshops should be
equipped with proper weigh bridges.

(Para 403)

(175) We strongly urge that adequate provision should be made in
each of the workshops for ultrasonic equipment for the testing of axles.

(Para 406)

(176) We suggest that a periodic evaluation of the efficacy of quality
control in the workshops should be done at the Chief Mechanical Engi
neer’s level.

(Para 408)

(177) We emphasise the need for more detailed information being
regularly supplied to the workshops concerned in respect of failures of
locomotives arising from poor workmanship so that they can adopt proper
remedial measures.

(Para 408)

(178) We consider that with a careful study of the present defects
and a few minor improvements in the design of reflectors and dimmer
switches, it should be possible to ensure that locomotives go out with
proper headlights and dimmer switches in working order.

(Para 409)

(179j We urge the Railway Board to standardise the equipment and
the facilities required for diesel loco sheds where they have not so far been
standardised so that the Railways can thereafter take steps to equip the
sheds to the required standard.

(Para 412)

(180) The facilities in the diesel sheds should be such as can com¬
pare favourably with the facilities available for maintaining similar
assets in other advanced countries.

(Para 412)

(181) We emphasise the need for ensuring that electric loco sheds are
equipped with all the necessary machines and plant from the beginning
if maintenance of a high standard is to be attained.

(Para 415)

(182) We understand that a committee of senior officers has been ap¬
pointed to go into the question of standardising the machinery and plant
to be provided in electric loco sheds. We consider it a step in the right
direction.

(Para 416)

(183) We urge that energetic steps may be taken to see that a more
suitable and reliable type of speedometer-cum-speed recorder is manufac¬
tured indigenously for use on locomotives.

(Para 420)

(184) We suggest that either the speedometer on metre gauge diesel
locomotives should be repositioned on the control desk or alternatively
another speedometer may be provided so that the driver can refer to it
conveniently.

(Para 421)

(185) So long as the VDO type speedometers are in use on diesel loco¬
motives, it is suggested that a direction corrector should be fitted.

(Para 422)

(186) We recommend that a detailed technical survey of defective
speedometers and the intervals at which the components require attention
in the workshops should be made and on the basis of this survey remedial
measures evolved so that a target for servicing of speedometers not oftener
than once a year can be achieved.

(Para 423)

(187) We suggest that within the shortest possible time, all diesel and
electric locomotives should be equipped with the driver's vigilance device.

(Para 430)

(188) All new motive power units manufactured at Diesel Locomotive
Works and Chittaranjan Locomotive Works should be fitted with this
device before being sent out to the Railways.

(Para 430)

(189) We suggest that while the process of installation of the driver’s
vigilance device is continuing, the administration should take steps to
carry the staff with them in regard to the utility of the device.

(Para 431)

(190) We recommend that anti-slip devices provided on diesel and
electric locomotives should be frequently checked for their efficient func
t toning.

(Para 436)

(191) We suggest that both the indications, i.e. visual as well as
audible, should be provided on diesel locomotives to give an indication
of wheel slip.

(Para 436)

Chapter X —Goods and Coaching Stock

(192) The examination and maintenance of wagons and coaches has
an important bearing upon the standard of safety in railway operation.

(Para 437)

(198) We have been advised that a uniform time schedule for diffe¬
rent types of train examination is being laid down on the basis of which
gangstrengths in different yards will be determined by the Railways taking
into account the number of trains dealt with in these yards. We welcome
this decision and hope that its early implementation will remove the com¬
plaints voiced by officers and staff about inadequate time allowance for
examination, insufficient gangstrengths, skipping of repairs, etc.

(Para 438)

(194) We are of the view that if the Andal pattern of train examina¬
tion has proved efficient, economical and useful, it should be extended to
other important train examining centres. We suggest that difficulties, if
any, in its adoption at other places should be overcome.

(Para 439)

210

(195) We consider that Ore maintenance of gpods rolling stock merits
no less importance th^in yard operation and the occasions ; on which, re¬
course should be had to the provision for curtailment of time for train
examination in exceptional cases should be few and far between.

(Para 440)

(196) (i) Though some Railways have issued instructions in book form
for the train examining staff, it seems that some confusion still exists in
the minds of staff, particularly about safe-to-run examination.

(ii) We suggest that the scope of each type of train examination given
to goods rolling stock should be clearly delined for the guidance of the
staff and the Components to be examined and checked, spelt out and in¬
corporated in the rules.

(Para (441)

(197) We suggest that apart from ‘defect investigations' which are
undertaken by the RDSO off and on in respect of components which are
reported to fail frequently, the design of goods rolling stock, particularly
IRS wagons, should be examined by the RDSO or by a Committee at
technical officers to see if there are any inherent defects and if any modifi¬
cations are necessary in view of the higher speeds being planned.

(Para 442)

(198) We consider it essential that the staff concerned with the
examination of wagons should be educated in respect of the incidence, of
derailments caused by the various defects and their consequences in order
to provide motivation for a higher standard of workmanship.

(Para 443)

(199) It is also necessary to provide the essential gadgets for examin¬
ing the various components and to train the examining staff in their use.

(Para 443)

(200) As regards the carrying out of repairs in liaffic yards, we think
that a satisfactory solution lies in identifying the repairs to be carried
out on trains and in traffic yards, standardising the pre-requisites for the
proper carrying out of such repairs and then ensuring that the pre¬
requisites are available.

(Para 444)

(201) We consider it important that taking into consideration the
nature and extent of repairs to be done, the facilities and equipment in
each sickline should be surveyed and the deficiencies made good.

(Para 445)

(202) . The provision of wheel lathes, ultrasonic testing equipment and
burnishing machines in the major sicklines will enhance the standard of
maintenance of rolling stock in the sicklines.

(Para 446)

(203) (i) In our view, the stage at which each wagon goes for normal
axle box repacking is the occasion when the wagon should receive full
attention and be turned out in as perfect a condition as possible, viz.
with aU the defects rectified.

(ii) Checks on the wagons coming out of the sicklines after repacking
should be. greatly intensified as, in our view, the standard of repairs given

211

to the wagons would depend on the measure of supervision and inspec¬
tion at this stage.

(Para 447)

(204) (i) We strongly urge that energetic steps should be taken to en¬
sure the provision of adequate numbers of washing lines and pit lines
with the necessary facilities so that each rake is properly examined and
maintained on the washing line or pit line.

(ii)'We also consider it necessary that there should be timely place¬
ment of rakes on the pit lines to facilitate examination of wheels and
undergear.

(Para 4S1)

(205) (i) We find that the percentage of coaches, marked sick and de¬
tached at stations enroute and at terminal stations other thaq primary or
secondary maintenance stations to the total number of coaches marked
sick was 6.2 on the broad gauge and 8.1 on the metre gauge from April,
1967 to September, 1968.

(ii) We emphasise that attention to coaches at primary and secondary
maintenance centres should he intensified in order to reduce the overall
percentage of sick coaches.

(Para 454)

(206) (i) Running gear defects, viz hose relating to axle boxes, bogie
frames, spring suspension and brake gear accounted for the highest per¬
centage of the total number of defects on both the broad and the metre
gauges. The incidence of damage-labelling on this account was higher on
certain types of coaches than on others.

(ii) The percentage of coaches damage-labelled due to wheel defects
was also on the high side on both the gauges, particularly in respect of
ICF coaches on the broad gauge.

(iii) We emphasise the need for greater attention to coaches at the
maintenance depots. We also suggest that a broad analysis of defects which
result in damage-labelling of coaches should be made at regular intervals
and disseminated to the staff.

(Para 455)

(207) (i) We urge that a detailed analysis of the causes of electrical
defects be made and remedial measures taken to bring down the incidence
of sick coaches on this account on all gauges.

(ii) We consider that it would be useful if the staff are made aware of
the results of the analysis with a view to improving the standard of
examination and maintenance of electrical installations in coaches,

(Para 456)

(208) We suggest that fuses should be provided on both the positive
and negative wiring in steel bodied coaches.

(Pira 458)

(209) (i) We suggest that the checking of earth leakage with the help
of test lamps should be intensified and carried out at the time of both
primary and secondary maintenance of carriages.

(ii) We suggest that the observance of these checks should be watched
both at the divisional and headquarters’ level.

212

(iii) Spot checks by electrical engineers and supervisors to ensure that
testing is carried out properly would, in our view, prove highly advanta¬
geous in toning up the quality of work done by staff.

(Para 459)

(210) We suggest that a system for investigation of failures of certain
selected carriage and wagon components be evolved on lines comparable
to the investigation which is done at present in case of engine failures.

(Para 460)

(211) We are glad to know that ‘defect investigations' in respect of
the design of certain components are carried out by the RDSO and modi¬
fications are issued as and when necessary. While this is indeed a conti¬
nuous process, we suggest that results of invetigations and recommenda¬
tions made by the RDSO should be uniformly disseminated to all Rail¬
ways for appropriate action.

(Para 463)

(212) (i) It is the Railway Board who should issue instructions regard¬
ing modifications setting out the target dates for carrying them out and
call for periodical progress reports,

(ii) We are strongly of the opinion that the whole process of issue of
modifications by the Railway Board and thereafter the execution at the
Railways' level needs to be streamlined if the effort and thought which
go in ordering such modifications for enhancing safety are to serve any
useful purpose.

(Paras 465 and 467)

(213) It is suggested that equalising beams which fail in service should
be replaced by those manufactured to RDSO’s drawing and specifica¬
tion from Class II steel and safety clamps should be provided as suggested
by the RDSO.

(Para 473)

(214) (i) We find that at present if the bearing spring of a BOX
wagon on a train breaks, the train is permitted to proceed at a restricted
speed to the next train examining station with the broken spring clamped.
We consider that the appropriate course would be to detach the wagon
with a broken spring at the station where this defect is detected and to
summon the train examining staff for replacement of the spring.

(ii) It is also suggested that the plates for the springs may be made
from silico-manganese steel instead of the present specifications to reduce
the incidence of breakage.

(iii) It is essential that a satisfactory solution to the problem of over¬
loading of BOX wagons with minerals should be found to reduce the inci¬
dence of breakage of springs,

(Paras 479 and 480)

(215) We asked for information regarding progress of implementation
of ten selected recommendations in the report of Director, Research (Hot
Boxes). We do not feel heartened by the progress of the implementation
of these recommendations and urge that energetic action may be taken to
implement the recommendations.

(Paras 482 and 483)

(216) We recommend research and study to develop a hot box detector
for use on the Indian Railways.

(Para 484)

213

(217) We strongly urge that whatever measures are needed to cause
Jessops to fulfil the order placed on them in respect of EMU coaches be
adopted.

(Para 485)

(218) We hope that with the increase in the capacity for periodical
overhaul the back-log in the periodical overhaul of EMU coaches on the
Central Railway would be cleared.

(Para 486)

(219) (i) We are of the view that the directives in regard to the pres¬
cribed percentages of effective vacuum cylinders on trains must be observed
uniformly on all the Railways.

(ii) The number of effective cylinders on a train must be a special
point of check by the neutral control examiner.

(iii) It is of the greatest importance that the staff who are actually to
operate the train know the real position in regard to the brakepower
available on the train.

(iv) It is essential that the requisite brakepower should be available
on all trains and difficulties arising either on account of defective material
or other factors should be overcome.

(Para 492)

(220) We are of the view that endeavours should be made to improve
the safety factor in respect of trains running on narrow gauge sections.
Locomotives, carriages and wagons should be equipped to the extent possi¬
ble with vacuum brake apparatus and where this is not possible, alterna¬
tives should be evolved as for instance introduction of rail cars, etc. Re¬
liance upon hand brakes for the safety of trains is, in our view, not only
out-moded but also hazardous.

(Para 493)

(221) We hope that a satisfactory solution would be evolved in regard
to the difficulty of stopping diesel hauled goods trains as the application
of the vacuum brake in the brakevan gives little or no indication to the
driver.

(Para 494)

(222) We suggest that on all anti-telescopic coaches, an identifying
mark or code should be inscribed for the guidance of the operating staff
so that in the event of stock of both types being available, the staff marshal
anti-telescopic coaches in preference of other steel bodied coaches.

(Para 495)

(223) (i) We suggest that the spring suspension system of the broad
guage four-wheeler brakevans should be redesigned to provide comfortable
riding at speeds of 75 km. p.h. or more.

(ii) We also suggest that the suspension arrangements of the metre
gauge four-wheeler brakevans should be investigated with a view to im¬
proving their r'ding.

(Para 496)

(224) We hope that effective steps will be taken to provide adequate
capacity in the New Bongaigaon workshop for periodical overhaul of
coaches.

(Para 497)

214

(225) (i) It is essential that the percentage of goods stock overdue
periodical overhaul on the Western Railway should be reduced consider¬
ably.

(ii) The need for regulating the how of coaches into the workshops
for periodical overhaul on the Central Railway is emphasised.

(Para$ 498 and 499)

(226) The need to equip every carriage and wagon workshop with
adequate .ultrasonic testing equipment for testing axles and also equalising
beaftis of IRS metre gauge coaches cannot be over-emphasised.

(Para 500)

(227) We suggest that special efforts should be made to procure bur¬
nishing machines for the workshops.

(Para 500)

(228) We recommend that a periodical analysis of all cases of roller
bearing failures on coaches and wagons indicating date, year and station
of mounting, particulars of last attention given, cause and responsibility,
etc. should be iuade so that remedial action, if required, can be taken.

(Para 503)

(229) We suggest that the Research, Designs and Standards Organisa¬
tion should go into each case of failure of roller bear ngs and analyse every
aspect including materials used and the manufacturing accuracies and
suggest remedies. We attach utmost importance to this matter in view of
the increasing use of roller bearings on Indian Railways.

(Para 504)

(230) We consider it important that all carriage and wagon work¬
shops are provided with suitable and adequate facilities for over hauling
of roller bearing axle boxes at the time of periodical overhaul or whenever
such axle boxes are sent to the workshops. It is also essential that the
workshops where roller bearing axle boxes are attended to have dust-proof
facilities.

(Para 505)

(231) We invite the attention of the Railway Boat'd to the type and
manner Of attention to roller bearings in workshops on the Japanese Na-
tionaj Railways. It seems to us that the adoption of a similar system will
be of advantage to the Indian Railways.

(Para 506)

(232) We suggest that a programme should be drawn up to replace the
outdated or overaged machines in the workshops on a phased basis.

(Para 507)

(233) We urge that measures should be taken to see that coaches are
in perfect condition when offered for examination after periodical over¬
haul. Steps should be taken to improve the standard of workmanship to
minimise the percentage of rejections.

(Para 508)

(234) . (i) We feel that neutral control examination serves as a further
check and has been generally useful in keeping wagons in good fettle and
we consider that nothing should be done to weaken it in view of its inde¬
pendent" character.

(ii) We consider that in view of the changing pattern of traffic, neutral
control examination need not necessarily exist at the boundary points of

215

the Railways as used to be the case in the past. The Railway Board should
examine the existing set-up of neritral control examination and decide
upon the various points at which it should be located.

(Para 509)

^235) (i) We are of the view that there is need for revision of Confe¬
rence Rules Part III. The rules contained in this publication should not
only, provide comprehensively for the examination and repair of all types
of stock which have been introduced on the Indian Railways over the, past-
several years but the provisions having a direct bearing on safety in railway
operatidn as distinct from those simply meant to keep the coaches and
wagons in good fettle should be clearly specified. We understand that the
Railway Board have under scrutiny a draft prepared by the IRCA for
the examination of all tyjies of coaching stock.

(ii) Ip, order to reduce the incidence of derailments, due to carriage
ajrd wagon defects, the neutral control examination should lay greater em¬
phasis on the compliance of safety rules and regulations in the ntattar of
maintenance of stock.

(Para 510)

(236J; The ( Indian . Railways Conference Association publishes annually
a 'Report on the broad and metre gauge wagon pools and neutral control
of Wagon 1 examination’ which includes the results of the surprise checks'
conducted by the neutral control flying squads. We suggest that the report
should clearly specify the percentage of wagons found unsafe-to-run to the
total number of wagons checked.

’(Para- 511)

(237) In view of the large proportion of overaged locomotives, coaches
and wiagons which will have to be kept in use during the Fourth Five Year
Plan due to smaller allocation of funds in -the Plan, we think that special
attention will have to be given to suchstock during periodical overhaul
as well as during day-to-day maintenance.. Periodical overhaul to such stockf
may have, to be given at shorter intervals to keep them road-worthy, and
safe for operation. We urge the Railway Board to give serious considera¬
tion to this matter.

(Paras 513 and 515)

Chapter XI —Stores

(238) Wd had, ill Part I of our Report, referred to the 1 fact that con¬
siderable time arid energy of the executive officers spent in chasing after
the procurement of’items itf spare-ptfrfS’and stores which are in cnironic
short supply. The position as indicated by the evidence tendered before
tiS in regard''to the supply of such stores seems even worse than we had
thought.

(Para 516)

(239) It is of vital importance that to maintain locomotives, rolling
stock, signalling equipment and permanent way to prescribed standards,
the supply lines that convey spare parts and, stores from the supplier to
I he ultimate user keep moving with clock-work precisio'

(Para 516)

(240) The policy in regard to imports of vital parts * required for
maintenance of valuable assets as also the procedure of release of foreign
exchange needs to be thoroughly reviewed so that not only is the foreign

216

exchange utilised to the best possible advantage but also the short-sighted
policy of saving some little foreign exchange at the cost of keeping valuable
assets idle is avoided.

(Para 521)

(241) The chimerical impression which the compliance percentages of
90 to 95 evoke is apt to prevent the focussing of the administration’s atten¬
tion on the need to streamline their supply lines apart from the smugness
which these percentages induce in the Controllers of Stores of wthich we
found a fair amount of evidence.

(Para 521)

(242) (i) Complaints were voiced constantly about the inferior quality
of tools, stores ana spare parts such as adjustable spanners, screw drivers,
bulbs, battery material, rubber rolling rings and other rubber fittings, etc.
We were shown certain spare parts and components which though brand
new could not be put to use as they were either of the wrong size or they
did not match with the components in conjunction with which they were
supposed to be used.

(ii) We have no doubt that the inferior quality of tools, stores and
spare parts, apart from turning out to be false economy in the end is highly
frustrating inasmuch as it throws additional burden on the staff in the
performance of their duties and renders the work of repairs and mainte¬
nance more onerous. In many instances where due to the unreliable quality
of spare parts, shoddy repairs are effected, safety too would be at stake.

(iii) It would be more prudent and economical to provide tools, stores
and spare parts of the requisite quality readily identifiable and covered by
adequate guarantees by paving a proper price in the beginning.

(Para 527)

(248) We had occasion, in Part I of our Report, to refer to over¬
emphasis in accepting the lowest tenders due to the fear in the purchasing
authority Of criticism which may be engineered by the rejected tenderers.
We reiterate that the administration should endeavour to insulate its pur¬
chasing officers from such criticism if it is satisfied that the discretion was
exercised for good and sufficient reasons.

(Para 528)

(244) We consider that as a rule all tools arid spare parts must have
the manufacturers” markings on them.

(Para 529)

(245) We had, in Part I of our Report, referred briefly to difficulties
which, are being experienced in respect of items procurable through the
Directorate General of Supplies and Disposals. We have examined in some
detail the procedure for, and the position in regard to, the procurement
of store* through the agency of the Directorate General and Supplies and
Disposals. We find that—

(i) Despite the enormous industrial advancement made in the
country during the last two decades and the improved materials
management methods wh ; ch are being employed everywhere,
the time intervals for processing of indents and procurement
of stores have remained more or less unaltered. Their conti¬
nuance in the present form is, in our view, unjustified.

(ii) It is unrealistic to expect an organisation as complex as the
Railways which has been developing at a fast pace and under¬
going modernisation to assess its requirements of stores 24
months ahead. Furthermore, factors like an ever-increasing and

217

yet changing pattern of traffic which is closely linked up with
the growth of industrial activity in different part* of the coun¬
try, and the unpredictable law and otder situation' in the coun¬
try which on the Railways is reflected in the widt-spread inci
dence of thefts of railway material and cases of vandalism, make
precise forecasting of requirements in any event difficult but
with a procedure which prescribes a lead time of two years
make things impossible.

(in) The position is depressing both in respect of the,coverage of
indents and the materialisation of supplies. Not only was a
very low percentage of the indents covered in time, but the
extent of delays in the supplies on the basis of originally pres¬
cribed delivery periods ranged from 1 to 20 months^ .in addition
to these delays the supplies against several contracts for which
the original delivery dates had expired, in some cases years ago,
still remained outstanding.

(Paras 531 to 541)

(246) Wc express our keen disappointment over the delay in procure¬
ment of railway equipment and stores through the agency of the Directo¬
rate General of Supplies and Disposals.

(Para 542)

(247) We are of the view that the functions of purchase cannot be
divorced from the allied functions of standardisation, control on inventory,
value analysis and control on consumption. Scientific materials manage¬
ment is possible only if the function of purchase is integrated with the
other functions of materials management.

(Para 544>

(248) It appears to us that too much has been made of the benefits
resulting from bulking and that too little attention has been paid to dis¬
advantages inherent in the system of procurement of stores through an
agency not involved in the running of the Railways. In our view, the
disadvantages in the system clearly outweigh the advantages.

{Para. 545)

(?49) (i) We are clear in our minds that responsibility for the procure¬
ment of stores should rest squarely with the Railway Board at>4 tne Rail
way administrations without bringing into the picture the agency of the
Directorate General of Supplies and Disposals.

(ii) We think that this will lend stability, permanence and contiqpity
to the procurement of railway equipment and stores and woidd impart -?
greater sense of urgency to the officers of the Railways entrusted with the
responsibility of materials management.

{Para 546)

(250) We have been assured by the Railway $oard that-they have the
basic organisation to replace the agency of the Directorate General of
Supplies and Disposals for procurement of their own stores and would be
in a position to take this job over. We consider that this is a matter which
can brook no further delay.

(Para 548)

(251) , We think that with the transfer of the functions of the Directo¬
rate General of Supplies and Disposals to the Railway administration, some
reorganisation of the existing system and streamlining and simplification
of tne procedure relating to procurement of stores will be necessary to
msec, the grdiving requirements of the Railways.

(Para ,547).

L£F(1f)3MofB»flw»y-16

218

(252) We Arid that over the years, while the levels of prices of mate¬
rials on the one hand and of the consumption of stores on the other have
been rising steadily, the powers of purchase vested in the Controllers of
Stores have not kept pace.

(Para 548)

(253) We consider that the following suggestions made to us deserve
most careful consideration—

(1) The powers of purchase of Controllers of Stores should be raised
to Rs. 50,000 or even Rs. 1,00,000 from the existing limit of
Rs. 25,000 with suitable increase in the powers of other pur¬
chase officers. The limits of purchase through 'single tender* and
in case of cash purchase should be suitably enhanced. >

(ii) Finance need not be associated for purchase upto Rs. 10,000
and in case of purchases in which the value exceeds Rs. 10,000
the stages of consultation with Finance should be confined only
to assessment of quantity, association on tender committee and
issue of contract.

(iii) There is need to develop a proper buyer-seller relationship in
respect of safety items of stores so that the seller becomes more
committed and has a greater stake in his dealings with Rail¬
ways. For a tie*up of this nature, an assurance to one or two
firms in respect of each important item that the requirements
would be bought from them for a specified period may be
necessary.

(Para- 549)

(254) We feel that the powers of purchase of stores at all levels should
be kept under constant review by the Railway Board so that they are ade¬
quate to cope with the ever-increasing needs.

(Para 550)

(255) We are of the view that it may be possible to decentralise the
stores organisation in a manner that the advantages of having stores depots
contiguous to the consuming centres are derived without subjecting the
system to disadvantages arising out of larger inventories.

(Para 552)

(256) We had, in Part I of our Report, stressed the need to adopt
scientific methods of inventory control and modem materials management
techniques. We consider that for effective and efficient materials manage¬
ment and the solution of various complicated problems the Railways would
do well in seeking specialist guidance from quarters who have the requisite
expertise m materials management.

(Para 553)

(257) (i) We consider that materials management today is a specialised
job. Over dependence on ill-qualified ministerial staff would create prob¬
lems for the stores organisation rather than solve them.

(ii) We have no doubt that the recommendations of the committee of
the Controllers of Stores appointed to go into the reorganisation of the
stores department would go a long way in improving the stores organisa¬
tion.

(Para 554)

Chapter XII— Theft, Vandalism and Sabotage

(258) Theft of railway equipment and vandalism on the Railways are
a serious problem from all accounts. Not only is theft of copper wire wide¬
spread on the Railways but the evil extends to components of locomotives.

219

coaches and wagons and electrical equipment having even a small copper
or brass element.

(Para 555)

(259) We consider that the Railways should have a registered mark
for railway materials and parts on which such mark can be imprinted as
this would obviously make it possible to take effective action against per¬
sons in unlawful possession of railway property under the Railway Pro¬
perty (Unlawful Possession) Act,

(Para 557)

(260) We feel that cases of wilful tampering with track do not receive
from the State police and the other authorities concerned with law and
order the attention that they deserve.

(Para 564)

(261) (i) We find that accidents due to sabotage have been increasing
during the last 15 years and the action taken to trace the culprits has been
largely ineffective.

(ii) We do not agree with the Ministry of Home Affairs that preven¬
tion of accidents due to sabotage is a matter which may be left to be tackled
by the Railway Ministry themselves. It appears to us that if the problem
were viewed only from the viewpoint of percentage of train accidents attri¬
butable to sabotage, it is apt not place the gravity of accidents resulting
from sabotage in correct perspective.

(iii) We urge the Ministry of Home Affairs to ask the State Govern¬
ments to take adequate measures to apprehend and prosecute the culprits
successfully. Prevention of sabotage falls wholly and solely in the jurisdic¬
tion of the State police.

(Para 565)

(262) The Additional Commissioner of Railway Safety is a technical
and highly experienced officer independent of the Railway administration
and when after due investigation ne comes to the conclusion that an
accident was due to wilful tampering with track, the State Police autho¬
rities should ordinarily be guided by the results of these investigations.

(Para 566)

(263) In the event of a difference of opinion between the State police
and the Commission of Railway Safety in regard to whether the accident
was due to sabotage, the Railway administration should not allow the
matter to rest at that but should pursue this with the State Government at
a higher level.

(Para 566)

(264) We feel that there is need for suitably amending Section 12 of
the Railway Protection Force Act, 1957 and Section 126 of the Indian
Railways Act, 1890 in order that a person indulging in theft or destruction
of railway property or in wrecking or attempting to wreck a train can be
arrested and proceeded against with a reasonable chance of success.

(Para 570)

(265) We stress that the menace of theft of and tampering with railway
equipment is too serious to be treated merely as an ordinary law and order
problem as it adversely affects safety in railway operation.

(Para 576)

(266) (i) It appears to us necessary that steps should be taken to edu¬
cate public opinion and to rouse the social conscience of the people as to
the heinous nature of the crime of sabotage and of activities like vandalism

220

and theft of railway material which result or may result in serious disas¬
ters invdlving loss of life of innocent persons, travelling on the railway.

(ii) We make a special appeal to the public men, the educationists and
the press who have the opportunity and responsibility of moulding public
opinion to do t'heir duty in this connection.

(iii) We feel that the Railway Ministry and the State Governments
should keep in mind the necessity of such an approach all the time.

(Para 5)1)

Chapter XIII — The Commission oj Railway Safety

(267) Under the law, the Railway Board are the Safety Controlling
Authority. The responsibility for safe operation of railways, thus, rests with
the Railway administration. That responsibility cannot be shared by offi¬
cers of the Commission of Railway Safety.

(Para 576)

(268) We have been assured by the Commissioner of Railway Safety
that full cooperation and assistance of every kind is given by the Railway
administration to the Commission of Railway Safety.

(Para 581)

(269) We consider that - in cases in which the Additional Commissioner
of Railway Safety is unable, due to preoccupation or otherwise, to hold
an inquiry into a serious accident and requests the Railway administration
to arrange for a departmental inquiry, it should be sufficient if he expresses
his views on the findings and the recommendations made where he agrees
with the findings of the departmental inquiry, instead of preparing his
own report.

(Para 588)

(270) (i) We are of the view that the Additional Commissioner of
Railway Safety should inquire into certain types of accidents which are
not at present provided for under the rules. We have in mind, in particular,
two types, namely, (a) accidents at manned level crossings involving colli¬
sions between trains—whether goods or passenger—and road vehicles in
which there is loss of life or grievous injury to passengers in the road
vehicles and (b) collisions and derailments of goods trains in which there
is loss of life or grievous injury to any person.

(ii) The Additional Commissioner of Railway Safety must also make
such other inquiries into serious acc dents as the Commissioner of Railway
Safety considers necessary for him to inquire into.

(iii) The Commissioner of Railway Safety himself may, if he considers
fit or if his Minister so requires him. make inquiries into accidents of a
very serious nature.

(Paras 594 and 595)

(271) (i) We consider that the recommendations made by the Addi¬
tional Commissioners of Railway Safety should be incorporated as an in
tegral part of the accident inquiry report under the heading ‘Remarks
and Recommendations’ instead of being an annexure to the Report.

(ii) We suggest that line plans showing essential features and photo¬
graphs, where necessary, should be appended to such accident inquiry re¬
ports.

(Para 596)

(272) In our view, a period of 60 days from the date of accident should
ordinarily suffice for the final report to be sent by the Commissioner of

22-1

Railway Safety to the Railway Board and the Railway administration.

(Para 597)

(273) (i) From the safety point of view, inspections by Additional Com¬
missioners of Railway Safety are no. doubt advantageous.

(ii) The reports of inspections by Additional Commissioners of Rail¬
way Safety should be forwarded directly to the: Railways concerned and
copies may be sent to the Commissioner of Railway Safety and the Railway
Board.

(Paras 602 to 604)

(274) It seems to us definitely advantageous that the Commission of
Railway Safety remains attached to another Ministry so that its position
as a body independent of the Railway Board would be, and remains, quite
dear to the public.

t (Para 608)

(275) We have noted that during the past nearly three decades the
Commission of Railway Safety has Men attached to different Ministries
from time to time depending upon the reshuffling of portfolios and juris¬
diction of various Ministries. We recommend that from now on the Com¬
mission of Railway Safety should find a permanent anchorage, and that this
should be with the Ministry of Home Affairs.

(Para 609)

(276) We feel that the manner in which the draft report is at present
dealt With robs it of objectivity and independence and, furthermore, results
in unnecessary delays in finalising the report.

(Para 610)

(277) (i) We are of the opinion that, the responsibility for compiling
the report of an accident inquiry should be placed squarely on the Addi
tional Commissioner of Railway Safety concerned.

(ii) It 'is the final report which should be sent by the Commissioner
of Railway Safety to the controlling Ministry, the Railway Board and the
Railway administration concerned.

(Para 610)

(278) In case there is any difference of opinion between the Commis-
. sionen of Railway Safety and the Railway Board or the Railway adminis¬
tration with respect to the conclusions or the recommendations in the
report, the difference would have to be ironed out in a conference between
the Commissioner of Railway Safety and the Railway Board in such manner
as they think fit.

(Para 610)

(279) (i) We do not see the merit of an arrangement whereby the
rules for conducting of inquiries by the Additional Commissioners of Rail¬
way Safety are made by the Ministry of Railways.

(ii) We suggest that from now on whenever any changes in the present
rul$s are required these should be considered and issued by the Ministry
controlling the Commission of Railway Safety. This Ministry may, when
necessarv, consult the Railway Board while framing such rules.

(Para 612)

(280) We are of the opinion that it would inspire public confidence
in the independence of the Additional Commissioners of Railway Safety
if the public including trade unions and the press are admitted to the in¬
quiries. They would, of course, have no say in the inquiry itself bm mav

222

be present only as observers at the stage when the Additional Commissioner
of Railway Safety takes oral evidence of witnesses.

(Para 613)

(281) (i) The accident inquiry report intended for publication should
be available to the Press soon after its finalisation. 1

(ii) If prosecution is decided upon in a particular, case the publication
of the report may be withheld.

(Para 614)

(282) It is necessary that the entrants to the Commission of Railway
Safety should understand clearly that once they opt for the Commission
and are selected, they would not revert to Railway service. The Ministry of
Railways should have no further say in regard to their career.

(Para 616)

(283) We expect that if the steps that we have suggested.for securing
the independence of the Commission of Railway Safety are taken, an in-

S by the Additional Commissioner of Railway Safety will inspire suffi-
public confidence and a ‘judicial’ inquiry on the Indian Railways
would, in course of time, become a rare thing.

(Para 617)

(284) We suggest that the present strength of Additional Commis¬
sioners of Railway Safety may be increased from five to seven. The jurisdic¬
tion of the various circles is a matter to be determined by the Commissioner
of Railway Safety in consultation with the Ministries concerned. Mean¬
while, the fifth circle referred to in Para 586 of Chapter XIII, which has
hitherto been continuing as temporary, may be made permanent.

(Para 619)

(285) It seems to us that the field for recruitment to the Commission
of Railway Safety should be widened and there should be no bar to offi¬
cers of the Railways from departments other than the Civil Engineering,
namely, mechanical, operating and signal engineering being selected. We
would like to add that the selection of officers should be in consultation
with and on the recommendation of the Commissioner of Railway Safety.

(Para 620)

(286) We suggest a pyramid structure of grades for officers of the Com- '
mission. In our view, volunteers should be invited from among officers
in the Junior Administrative Grade.

(Para 621)

(287) (i) The seniority of officers in the Commission of Railway Safety
should be counted from the date of service in the Commission itself.

(ii) After an officer has joined the Commission of Railway Safety, there
should be no question of any further selection as far as grades upto Rs.
2,000—2,500 are concerned.

(iii) The selection for the post of Commissioner of Railway Safety
should be confined to the officers of the Commission of Railway Safety and
no outside railway officer should be imported for this purpose.

(Para 622)

(288) We are convinced that the Commissioner of Railway Safety
should have the appropriate secretariat status which in this case would be
that of an Additional Secretary to the Government of India.

(Para 628)

223

(289) It is a matter of regret that when the salary of General Managers
was raised in September, 1965, the salary of the Commissioner of Railway
Safety was not correspondingly raised as it should have been at the same
time. We recommend that this matter should be rectified without delay.

Tara 624)

(290) While we appreciate the considerations that led the Commis¬
sioner of Railway Safety to suggest a shift of the office of the Commission
to Secunderabad, it appears to us desirable that the office of the Commis¬
sioner of Railway Safety should be located at New Delhi.

(Para 629)

(291) The Headquarters of the Additional Commissioners of Railway
Safety should be at the headquarters of the zonal Railways except where
the jurisdiction of the Additional Commissioner of Railway Safety extends
to more than one Railway in which case it should be at the headquarters
of one or the other zonal Railway.

(Paia 630)

(292) The annual report on the working of the Railway Inspectorate
should continue to be placed on the tables of both Houses of Parliament.

(Para 631)

Chapter XI V~The Research, Designs and Standards Organisation and

its future role

(293) We set out the role and the various facets of activities of the
RDSO, as we visualise them.

(Para 636)

(294) We were told that efforts of the Organisation in farming out
problems of basic research to the National laboratories. Institutes of
Technology or research institutions had not met with much success.,

(Para 640)

(295) We suggest that with a view to obtaining better coordination
with the fundamental research institutions, laboratories and institutes of
technology, the Director General, RDSO, or his representative should be,
in an ex-officio capacity, on the governing councils of those of the National
laboratories and institutes on whom the RDSO has to lean heavily for
the solution of its basic research problems.

(Para .6*2)

(296) (i) The RDSO should concentrate on problems of applied
research which may refer to the evolving of ways and means to improve
the existing equipment and services or developing of new forms or systems.

(ii) We consider that in the matter of applied research, priority should,
for some time to come, be given to problems which are susceptible of at
least a partial solution within a period of two to three years over the rela¬
tively long-term research projects.

(Para 643)

(297) (i) A conspicuous example of a problem needing immediate solu¬
tion is die designing and standardisation of signalling relays on which
modern signalling depends so much and which are essential for progressing
such works.

224

(H) We understand that a beginning has been made by setting up a
Rciafys Cell in the RDSO but we consider it necessary to accelerate the
pace considerably so that relays suitable for our purpose and using indi¬
genous materials to the maximum extent can be developed.

(Para 644)

(298) It would, in our opinion, be useful to make a quantitative
asses sm ent of where and what safety facilities should be provided on the
various Railways and to what extent safety could be improved by doing
so.

(Para 646)

(299) We think that greater reliance will have, in future, to be placed
on methods Of Operations Research if the ultimate objective of the re¬
search organisation is to maximise efficiency, safety and long-term economy.

(Para 646)

(300) We are of view that designing and development of machines for
special purposes which cannot be purchased as off-the-shelf items from the
trade should be a continuous activity of the RDSO.

* (Para 648)

(301) In our view, adequately equipped sections of the RDSO should
be located at the manufacturing units like the Locomotive Works at Chitta-
ranjan, the Integral Coach Factory at Perambur and the Diesel Locomotive
Works at Varanasi.

(Para 649)

(302) (i) We suggest that efforts should also be made to attract the best
Indian talent for design work from all sources and to encourage the design¬
ing of Improved jig* and tools for railway workshops and better planning
of equipment qna plant layout fqr workshops, loco sheds, sidelines, stations,
etc

(ii) We have in view the specialist consultancy service which the
RD50 should provide in the designing and equipment of such depots.
It is not our intention that the Design Wing of the RDSO should rune
tion as a general-purpose drawing office at the neck and call of the Railways
and we would like the RDSO to guard against this.

(Para 649)

(303) We Consider, it useful that some sections of the standards wing
of the RDSO should be located in the Railway Board so that complete
sets of standard specifications and drawings can be readily available on
dendand and references regarding these can be disposed of speedily.

(Para 650)

(304) We suggest that the expert technical Standards Committees
should invite representatives of the Commission of Railway Safety and
some raanufactureres of railway equipment on a selective basis to partici¬
pate in their deliberations.

(Para 650)

n , i * ,ys. ■* .TiTrcr. i ;.r, w.

being made by advanced countries in the development of signalling and
telecommunication, particularly the use of such items as axle counters,
train describers, hot axle detectors, electronic track circuits, and automa¬
tion in marshalling yards, improved communication methods like message
dialling and microwave.

2*25

(ii) It has been represented to us that adequate attention has not been
paid to investigating problems concerned with signalling and telecommuni-
cation peculiar to the Railways or to strengthening the telecommunication
network on the railway system. We feel that there is great scope and
urgent need for' work of this nature hi the RDSO. and we would urge
that this receives its due share of attention.

(Para 651)

(806) : (i]j We are in favour of tests and inspections which are made
by the RDSO at the specific request of the zonal Railways, the Railway
Board or the Commission of Railway Safety. We would suggest that a
suitable organisation may be created in the RDSO so that such requests
cap. be dealt with without causing interference and interruption in the
other regular approved programmes of the RDSO.

(ii) The inspection of material manufactured in the signal and tele¬
communication workshops should, in order to ensure uniform quality, be
entrusted to the RDSO.

(iii) We understand that inspection of electrical signalling equipment
manufactured by the various firms is already undertaken by the RDSO
but only a small percentage of production is inspected as a test check. In
the preseht state of development when a number of firms are entering the
field and when those already in the field are taking to new items, it is
essential that a much larger proportion of electrical signalling equipment
is inspected both at the manufacturing stage and at the assembly stage.

(iv) The inspection organisation of the RDSO should, if required, be
suitably strengthened to perform these essential functions.

(v) , It appears to us that the inspection units could with advantage be
located at Calcutta, Bombay, Madras etc.

(Para 652)

(307) (i) We understand that the RDSO have been acting as con¬
sultants to the State Trading Corporation and the wagon building indus
try. We. would like to commend the RDSO on this expanding role and
would urge that technical consultations should be provided in full measure
to these important clients.

' (ii) We suggest that such consultation as may be asked for by the
Commission of Railway Safety should be made readily available.

(Para 653)

(308) . We consider that with the expanding band of competent offi¬
cers and staff and with the growing knowledge and expertise wh»ch the
RDSO is steadily acquiring, rendering of consultancy services by the
RDSO would progressively increase and more and more confidence will
be placed in its technical advice.

(Para 654)

(309) We consider that the details of projects to which the RDSO
should apply itself in future is a matter which would have to be left to
the RDSO -under the guidance of the Railway Board and the Central
Board of Railwav Research keeping in view the requirements and priori¬
ties which may arise from time to time.

(Para 655)

(310) We mention a few subjects whose urgency strikes us as press¬
ing:—

(1) With the increased speeds of rolling stock and the introduction

226

of fast non-stop trains the subject of vehicle dynamics has
assumed great importance. Research on the various aspects of
riding quality of rolling stock from the viewpoint of both safety
and comfort as also stress analysis on vehicle structures and
important components would have to be pursued, and if neces¬
sary, expanded. This research must be suitably dovetailed into
a wide-range study of derailments to establish guidelines for
designs and maintenance practices which are conducive to
greater safety.

(ii) The problem of seizure of roller bearings in fast non-stop trains
particularly when the conventional method of station staff
watching out for an overheated axle box from the station plat¬
form is no longer applicable appears to call for an urgent study
and solution.

(iii) It is necessary that research and development of a self-propelled
ultrasonic rail inspection car is taken in hand.

(iv) Considerable research and study is necessary to ascertain the
limits of safe speed on turn-outs of varying degrees.

(Para 655)

(311) We have no doubt that expansion of the RDSO would be
necessary so that the RDSO is able to play the role assigned to it.

(Para 656)

(312) We understand that the RDSQ is in need of some very im¬
portant equipment. We see no reason why the work in the RDSO snould
suffer for want of necessary Equipment and would suggest that procurement
of equipment should be planned so as to meet effectively the needs of the
RDSO.

(Para 658)

(313) The increase in expenditure in the course of the next few years
consequent on the expansion of the RDSO, would, in our view, be amply
justified and would be repaid in the form of higher standard of earnings,
efficiency, and safety in railway operation.

(Para 659)

(314) We strongly urge that foreign exchange needed for the expan¬
sion of the RDSO should be released as and when required.

(Para 660)

(315) It is our opinion that the reorganisation of the RDSO re¬
quired to fulfil the role suggested in the foregoing paragraphs should be
carried out within one vear.

(Para 661)

(316) (i) For an organisation like the RDSO to be successful, there
should be excellence not only at the top but at each echelon of the hierarchy
and the effort should be to induct the most suitable officers and staff at
all levels with suitable motivating environment.

(ii) It is obvious that the RDSO’s rules of business and the yard¬
sticks in respect of its staff, equipment and materials, financial powers, etc.,
may have to be different from those which are applicable ordinarily to the
Railway administrations.

(Para 661)

227

(317) To ensure that there are no hold-ups or handicaps to progress
anywhere in the organisation, the overall head of the RDSO should be
the Chairman of the Railway Board to whom the Director General should
report direct.

, (Para 661)

(318) The Director General, who is the functional head should appro¬
priately be selected from amongst the experienced General Managers with
a flair for research.

(Para 661)

(319) We had suggested in Part I of our Report that the head of the
■ RDSO should have a long enough tenure to make an impact on the

organisation. If this involves a still higher grade for the post temporarily
to enable the incumbent to continue, the upgrading would, in our view,
be justified.

(Para 661)

C.APTER XV —Accident Statistics

( !

(320) In order that statistics of train accidents may be of use, it is
important that they should identify at < least broadly, the primary causes
of the various types of train accidents. Only then can the administration’s
attention get focussed on the various basic causes which give rise to acci
dents.

(Para 663)

(321) (i) We find that the statistics of train accidents as compiled in
Statement 41 of the Supplement to the Annual Report on Indian Railways
at present are oriented only towards their number and consequences.

(ii) A small pamphlet ‘A Review of Accidents on Indian Railways’
published annually attempts an elementary analysis of causes under certain
broad heads in respect of collisions and derailments.

(Paras 663 and 665)

(322) While even broad heads of cause? may have some value, the
statistics of train accidents to be of intrinsic value should, in our opinioq
itemise these broad heads further so as to be of value to the administration.

(Para 666)

(323) We suggest that the accident statistics under different heads
should be compiled on all the Railways on a uniform basis and instruc¬
tions which leave no room for ambiguity should be issued to all the zonal
Railways.

(Para 667)

(324) We suggest streamlining of the classification of accidents. For

Instance---

(i) Fires in diesel or electric engines are more in the nature of
engine failures than accidents to trains, and a more accurate in¬
dication of the nature of such occurrence could be given if they
were to be brought under the broad head ‘failure of railway
equipment’.

(ii) Fires in trains should, in our view, encompass cases of fires in
vehicles and wagons only.

228

(iiij ft necessary, fires in electric and diesel locomotives may be
brought finder a separate sub-head under the general head
‘engine failures' to.tsolate them from the mass of figures in¬
cluded under ‘engine failures’.

(iv) Time failures of engines under the broad head ‘failure of rail¬
way equipment’ are reckoned on the basis of delays of one hour
or more caused to trains due to malfunctioning of train engines.
While such standards may have been all right for steam traction
years ago, we consider them inapt in the present day conditions,
particularly in case of diesel and electric locomotives whose effi¬
ciency index must be very different, and for which a much
shorter duration should, in our view, be prescribed.

(v) We notice that at present ‘failure of railway equipment' includes
only failures of rolling stock, permanent way and overhead
electric wires. Failures of signalling apparatus are not included
under this head. A breakdown of signalling installations can
cause heavy delavs in train running if not a complete stoppage
of movement. We therefore suggest that a breakdown of mo¬
dern signalling installations or means of communicatibn may
also be classified under the head ‘failure of railway equipment'.

’ (Paras 668 and 670)

(325) We consider that accident statistics compiled at any time should
be examined periodically to assess their value.

(Para 671)

Chapter XVI —Safety Organisati07i

(326) The lour important departments concerned with safety of rad
travel are the operating, the. mechanical engineering, the civil engineering
and the signal engineering departments. In order that rail traver may be
safe, it is npcessary that each department should do its bit in the best possi¬
ble manner.

(Para 674)

(327) It would be seen that there has been a fall of 44 per cent in
the number of train accidents during the last six years and the number
during the latest year’was the lowest. For this satisfactory performance the
credit must go not only to the safety organisation but to all categories of
railway staff including officers, supervisors and railwaymen of all depart¬
ments as well as the technological aids Introduced. Nonetheless, it is clear
that the safety organisation <has played a vital role in enhancing the element
of safety in rail travel by instilling safety consciousness amongst staff and
eradicating short-cut methods which jeopardise safety.

(Para 682)

(328) (i) We are of the view that the Directorate of Safety has a useful
function to perform inasmuch as it focusses attention at the highest level
on matters having a bearing on safety.

(ii) Analyses of long-term trends of accidents, examination of various
suggestions and recommendations to promote safety and following up the
implementation of the recommendations coupled with on-the-spot checks
to see whether short-cut methods are being adopted and how these can be
eschewed are, indeed, highly useful functions. We, therefore, consider that
the Directorate of Safetv should continue to perform these functions as a
permanent measure.

229

(Hi) We are disappointed to note that the post of Joint Director in
the Directorate of -Safety was abolished some time ago for reasons of econo¬
my. The main objective of having a Joint Director in addition to a Direc¬
tor was that at all times the Director,or the Joint Director could go out
on inspection and be able to see through field inspections that safety work
is carried on by the Railways on the right lines.

(iv) We consider this objective unexceptionable and would strongly
recommend that the post of the Joint Director in the Safety Directorate
should be revived. Considerations of economy should not, in our opinion,
stand in the way where safety is concerned.

(Para 684)

(329) The Transportation Superintendent (Safety) should spend a good
deal of his time in inspection from a safety angle. At the same time we
think that to keep in touch with the actual trend in accidents and other
safety measures which are evolved from time to time either on the basis
of accident- inquiries or of other sources, he should not be isolated from
case work dealing with accidents,

(Para 685)

(330) We suggest that-fhe headquarters safety organisation which is
headed by a Transportation Superintendent (Safety) may be strengthened
by the appointment, where required, of an officer in the senior scale who
would help the Transportation Superintendent (Safety) both in inspec¬
tions as also-in routine case work dealing with accidents.

(Para 685)

(331) Wc are of the opinion that the Divisional Sfffety Officer in each
of the Divisions should be in' the senior scale. Wherever the post is held
at present by an assistant officer, ifihbuld be upgraded.

(Para 687)

(332) (i) As safety must be built into the various departments of the
organisation itself and particularly in the departments mainly concerned
with movement of trains, we are of the view that Safety Counsellors of
departments other than transportation should be sent back to their parent
departments. On being sent back to their parent departments, these Coun¬
sellors should continue to carry on their present functions though under
the supervision of their respective divisional officers.

(Para 690)

(333) (i) We suggest for the consideration of the Railway administra¬
tions that when Safety Counsellors are reverted to their parent departments,
posts of Chief Permanent Way Inspector, Chief Loco Inspector, Chief
Carriage and Wagon Inspector and Chief Transportation Inspector should
be created in lieu of the existing posts of Safety Counsellors on each Divi¬
sion.

230

(ii) The functions of these Chief Inspectors should be to carry on
the work of safety by educating the staff in correct zpethods of worldng,
propagating the importance of safety by mass communication methods and
reporting to their divisional heads about any defects found by them during
the course of their checks on the line which jeopardise safety. These posts,
in our view, should be in Class II. We consider that in the selection of such
Chief Inspectors, their aptitude, sense of mission and dedication to the
cause of safety should be the primary considerations and they should be
hand-picked men.

(iii) The Chief Inspectors should concentrate on personal contact with
the staff whom they are required to guide and train in safety measures. One '
aspect of their approach should be the importance which the staff should
attach to their own personal safety.

(Para 691)

(334) (i) We understand that safety camps which had proved to be
useful were given up some time ago. We would urge that these short safety
camps should be revived.

(ii) These safety camps should not be confused with the regular re¬
fresher courses as safety camps are not intended to deal with routine rules
and procedure. Their objective is to invigorate the safety consciousness
of the staff.

(Para 694)

(335) We like to make a mention here of a highly enterprising effort
made by the Divisional Superintendent and his officers at Lucknow in
making a ‘safety model car' which we had opportunity to see. We were
impressed by the initiative of the Divisional Superintendent and his officers
ana would recommend that other divisions of the Railways may also
adopt similar imaginative methods.

(Para 695)

(336) (i) A majority of the fatalities to railway staff are understood to
occur to those railwaymen whose work exposes them to the danger, of being
struck down by trains or by other moving vehicles in yards. In order to deal
with this the Railways in the United Kingdom have devised high visibility
clothing in the form of short highly visible jackets to be worn over the
normal clothing so that the men on or near the track are more easily seen
by drivers of approaching trains both during day and night.

(ii) We recommend that this device in an appropriate form be intro¬
duced on the Indian Railways for the safety of rauwaymen.

(Para 697)

231

(337) (i) We warn against the inspections of supervisors and officers
in the safety organisation becoming routine inspections like those of 'other
departmental supervisors or departmental officers.

(ii) Inspections and spot checks by those in the safety organisation
should be devoted solely to high-light unsafe methods of working and how
they can be eschewed without undue detriment to speedy movement of
traffic.

(Para 698)

A ck n oiv ledge merits

700. The Railway Board had directed the Railway administrations
to give all possible assistance to the Committee in its inquiry and delibe¬
rations and had desired that the officers and staff should express their views
candidly and in a forthright manner before the Committee. The Railway
administrations in turn furnished the information called for by the Com¬
mittee in the maimer required of them. We readily acknowledge the co¬
operation received from both the Railway Board and the Railway ad¬
ministrations. We arc grateful to the General Managers and other officers
of the Railway administrations who showed us the utmost courtesy and
attention during the course of our tours on the Railways.

701. We also wish to express our indebtedness to the retired Chair¬
man and Members of the Railway Board and other senior officers who
agreed to spare time for us and gave us their valuable and mature advice.

702. Our thanks are also due to the Additional Commissioners of
Railway Safety for the information furnished and for the frank expression
of their views and to Secretary, Ministry of Tourism and Civil Aviation
and the Director General, Supplies and Disposals for having given us the
benefit of their views. The Director, Central Bureau of Investigation, New
Delhi was good enough to depute one of his senior officers to elucidate
certain points for the benefit of the Committee and for this we feel grateful
We also wish to rpcord our appreciation of the assistance given to us by
the Chairmen^ gf the Railway Service Commissions and of the opportunity
which they gave us to discuss with them matters to which we attach im¬
portance.

703. Finally we would like to pay a tribute to the Committee’s Secre¬

tary, Shri K.D. Madan for his conscientious labours which made >t possible
for us to conclude our work within seventeen months. He worked hard to
ensure that the Committee’s work went on smoothly and showed a high
degree of initiative, ability and tact in carrying out^his onerousjresponpi-
billties. In this task he was assisted ably bv Shri S.P/Sethi, Tfanspomtidn
Inspector. ' ,

704. The Section Officer, the other Inspectors and the staff attached
to the Committee coped ably with the formidable work, involved in pro¬
cessing the data received by the Committee and analysing the evidence
collected. They worked ungrudgingly for long hours often under adverse

232

conditions. In particular, we would like to commend the unremitting efforts
of the personal assistants and stenographers attached to the Committee
which enabled it to complete its job in time. We greatly appreciate their
diligence and devotion.

(K. N. WANCHOO)
Chairman

(M. R. MASANI), M.P.

Member

(S. R. VASAVADA). M.P.

Member

(F. C BADHWAR)
Member

(P. B. AIBARA)
Member

(K. D. MADAN)
Secretary
New Delhi
Cfyth August, 196&.

233

AnnexuRe I

Statement showing the details of cases of Individual staff and matters of
Statement showing the details of cases of individual staff and matters of
ski months of 1968-69 (upto 30-9-1968)

Central Eastern

Northern'

North Eastern

07-68 68-69 07-68 68-69

67-88 88-69 ’

67-68 68-69 ’

1. Total numbers of

individual oases of

all categories of staff

sponsored by the
Trade Unions re.
garding

(») Transfers .. 197"

122

507

318

1614

718

(6) Promotions . 161

418

231

417

263

215

110

(d) Punishments

(i) for Aooidonts ,. 6

(ii) Other oases .. 49

306

180

610

447

(e) Leave .. .. 82

205

117

670

,378

(/) Increments, Pay,

Allowances and other

payments ., 3,801

2,086

2,527

1,140

7,891

3,398

287

202

(g) Other oases ..2,343

1,210

1,904

' 855

2,937

1,122

227

185

Total ..6,893

3,570

8,179

3,005

14,341

6,383

634

, 409

2. Total number of oases

on policy matters spon-

sored by Trade Unions 1,029 506

1,651

535

1,304

469

134

3. Grand Total .. 7,722 4,076

7,730

3,540

15,645

6,862

708

664

4. Percentage of item 1 to 3 80' 7 87-6

79-9

84-9

91-7

93-2

82-6

83-2

6. Percentage of item 2 to 3 13-3 12-4

20-1

15-1

8-3

8-8

17-4

16-8

Northerast Frontier

Southern

South Central

W of, it fn .if _ ■ ■.

. . -AL

_A-

• t

. A

67-68

88-69

‘87-68 68-69'

67-68

68 69

1, Total numbors of indi-

vidual oases of all cate-

gories of staff sponsored
by the Trade Unions re-

(a) Transfer

227

* 91

(ft) Promotions

190

(a) Selections
(d) Punishments

(») for Accidents

. ,

(it) Other cases

285

(a) Leave

(/) Increments, Pay,

220

Allowances and other
payments

. 917

389

1,864

1,272

1,282

600

(g) Other oases

392

193

681

323

Total

1,599

686

3,295

1,920

1,763

790

2, Total number of cases

on policy matters spon¬
sored by Trade Unions

131

1,195

557

319

133

3. Grand Total

4, Percentage of item

1,730

779

4,490

2,477

2,082

923

1 to 3

92-5

88-1

73-4

77-5

84-7

85-6

6, Percentage of item
2 to 3

7*6

11-0

26*6

22-6

16-3

14-4

L/J(S)3Mof£ailw»y-

234

ANNKXtIRE I— COtltd.

Nature of Activities

I. Total number of indivi¬
dual coses of all
categories of staff
sjxmsoredby tho Trade
Unions regarding

(a) Transfers

241

138

151

3,152

530

(h) Promotions ' ..

312

181

1,703

959

538

252

(if) Punishments

(i) For acoidents ..

226

(it) Other cases

1,423

796

(e) Leave

, .

1,352

736

(/) Inurements, Pay,

Allowances and

ot her payments ,.

1,819

828

W£\73

20,201

9,952

((/) Ot her cases ,,

2,832

1,407

195

11,511

5,380

Total

5,188

2,661

475

212

40.165

19,696

Total number of oases on

policy matters sponsor¬
ed 1 >y Trade Unions ..

890

394

933

548

7,486

3,330

Grand Total

8078

8,056

1.409,

760

47,681

23,026

Percentage of item 1 to 3

88-8

87-1

33-8

27-9

84-3

85.4

Percentage of item 2 to 3

14-7

129

68-2

72-1

15’ 7

14-6

South Eastern

Western

Total all Railways
-

<57-OS <58-69

Instances of grievances of station staff brought up by the Trade Unions and their redress during 1967-68 and first six

months of 1968-69 (upto 30th September 1968)

235

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236

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%—Percentage of B to A.

Annexure III

Instances of grievances of driving staff brought up by the Trade Unions and their redress during 1967-68 and first six

months of 1968-69 (upto 50 th September 1968)

237

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239

Annexure IV

Analysis of expenditure on different types of signalling developments works

(Figures million* or rupees)

Items

Budgeted Actual Budgeted Actual Budgeted Actual

Modern Signalling

(»') Track Circuiting

3-22

8'66

9-76

8 - 42 -

7-13

7-51

(it) Route Relay interlocking

12 * 15

12-18

15-14

14-26

13-24

13-02

(Hi) Colour light signalling

7-13

7-17

8-96

6-14

7-97

6-69

(it>) Centralised Traffic Control

7-46

6-36

17-26

10-37

11-34

9-91

(») Automatic Train Control

. ,

, .

, ,

0-03

. .

(vi) Automatic Block System

6-48

8-84

5-38

6-12

2-75

2-98

Total (i) to (vi)

36-41

36-10

64 - 44

49-30

42-40

39-29

(vii) Other Signalling Development
Works

63-50

61-84

37-46

38-90

31 -,»7

28-98

Total (i) to (vii)

89-91

87-94

91-89

86-20

74-33

68-97

(viii) Telecommunication

6-12

3-68

6-98

4-30

16-37

16-98

(ix) Grand Total ..

96-03

91-82

98-87

90-60

90-70

84-95

Note:—T he figures in the table above do not include those for the South Eastern Railway
as that Railway did not furnish the requisite details.

Annexure V

Statement showing provision and year-wise programming of track circuiting
of Block Stations on trunk routes, main lines and the branch lines

On Trunk Routes On Main Lines On Branch Lines
B.G. M.G. Total '"b.G. M.G. Totid RG. M.G. TotTl

A. Total number of Block sta¬

tions .. .. 1,189 463 1,652 922 961 1,873 1,093 1,270 2,303

B, (i) No. of Blook stations pro¬

vided with Track circuiting:

(1) On all Passonger lines .. 169 120 279 93 16 108 21 12 33

(2) On main lines only .. 232 39 271 23 .. 23 .

(is) No. of block stations at

which truck circuiting work
ia in progress

(1) On all passenger lines.. 12 26 38 4 * 4 8 2 2

(2) On main lines only .. 136 135 6 .. 6

(Hi) No. of block stations at

which track circuiting had
not yot been undertaken hut
which are programmed for
provision of track circuiting
during :

(a) 1968-GO —

(1) On all passengor lines ..24 13 37 .. 1 1 .. 1 l

( 2 ) On main linos only .. 38 20 58 6 .. 6

On Trunk Routes On Main Lines On Branch Lines

(*) 1969-70—

(1) On all passenger lines ..

(2) On main lines only
(e) 1970-71—

(1) On all passenger lines ..

(2) On main lines only

(d) 1971-72—

(1) On all passenger lines ..

(2) On mam lines only
(«) 1972-73—

(1) On all passenger lines ..

(2) OH mam lines only
(tv) No. of Block stations to be

provided with track circuiting
Dut not yet programmed for
it.

(1) On all passenger lines ..

(2) On main lines only
Grand total of B(t) to (tv) —

(1) On all passenger lines ..

(2) On main Unevenly

' B.G.

M.G.

Total

161

183

136

178

138

178

nil

178

• • • V

« 4

* *

.. 270

169

429

122

.. 919

304

1223

••

■■

1189

403

1662

134

167

Annexure VI

Statement showing the extent of interruption to control communication
due to theft of copper wire

Rollway

Control Circuit
hours lost due to
copper wire thefts
and/or cable thefts

Number of Average Cirouit
cirouits hour lost per
involved circuit offeotcd
in thefts

Annexure VIII

Statement showing the various mechanical defects for which the coaches (bogies) were marked sick during 1967-68 and

first six months of 1968-69 (upto 30-9-68)

242

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Annexure IX

Statement showing position m respect of execution, of ten selected modifications to carriage and wagon component

by the Railways

2*3

244

245

Annexure X

Statement showing progress of implementation of the recommendations of
the Director (Hot Boxes) contained in Special Investigation Report
( 1966 ) ‘

Item Reoommendation Board’s decision and progress of imple-

No. mentation

51 Boiler burnishing of plain bearing
journals is far more satisfactory than
finishing them with a grinding opera¬
tion and henoe finishing of such
journals on grinding machines should
notnormally be permitted.

01 The adoption of Foam Rubber lubri-
oating pads having been approved by
C. k W. Standard Committee, steps
should be taken to set up indigenous
oapaoity as early as possible.

62 The limited trials oarried out so far
with the light axle oil have shown
promise and it is therefore, reoommend-
ed that farther large soale trials be
oarried out while simultaneously
examining the availability and the
prfoe factors of the light grade axle
oil.

65 Fitmen of rubber gaskets with the

axle box face plates having already
been approved should be expoditod.

66 Useofsemi-tubularrivets for scouring

the axle box faceplates having already
been approved should bo implemented
as early as possible.

75 It is reoommended that further trials

may be conducted after carrying out
minor modifications t o a more last ing
type of skid which was being develop,
ea on the lines of a standard skid
used on German Federal Rail¬
ways.

76 It will be neoessary to closely follow

up the development of the required
manufacturing capacity for the im¬
portant new items such as lubricating
•pads, Hardier axle box fact plates, semi-
tubular rivets for face plates, face
plate gaskets, superior type rear dust
skidds, the proposed modified axle boxes
and some improved type of axle
guards in order to bring out axle box
assembly in line with better designed
unite which are now in use in other
countries.

Recommendation accepted. Implemented ia
Eastern, Northern, Southern and Western
Railways. All procurements both on re¬
placement and additional aooounts are of
roller burnishing machine and not grinding
machine. It may be mentioned that these
are not made in the country and have to be
imported.

Accepted. Development orders on two firms
at Faridabad and Calcutta have been issued
for conducting large soale field trials before
these are finally adopted by the Railways.

Accepted. Trial programme is under prepara¬
tion by RDSO/Luoknow. Action has already
been initiated for procurement of light grade
oil.

Accepted. Railways have already placed in¬
dents for the gaskets on D.G.S. and D. and
these will bo fitted as soon as supplies are
received. ,

Accepted. One year’s requirements of semi-
tubular rivets have been worked out and the
Stores Directorate has been asked to arrange
procurement.

Accepted. Implemented by all the Railways.

Accepted.

(i) Lubricating pads —Remarks are same as
against item 61.

(si) Sturdier axle box face plates —While
tho trade enquiries made earlier were
not very encouraging Eastern Railway at
tho moment are engaged in pro> moment
of this item for trial according to the
scheme which is being finalised by RD60.

{Hi) Semi-tubular rivets, gaskets —Remarks
are same as against item 66 and item
65.

(tv) Modified axle box —An experimental order
to prove feasibi lity of manufacture with •
in a reasonable cost haa bees placed
with the CXW/Chittaraojan.

246

Aem

\stp.

Recommendation

Board’s and progress of impo
mentation

7!)

(?•} Face plate, gasket —Railways have placed
indents on 1).G. 8. and 1). The progress
is being watched.

(iti) Dust Shield —Two J.N.R. type reinforced
neoprene rubber dust shields were
put into trial and result showed that they
were superior to those made of leather.
Development of these items oonld not be
progressed further due to high prices quoted
by indigenous firms involving large element
of foreign Exchange. However, further field
trial will be conducted when conditions
permit.

(vii) Axle guard —The question of failures
on the pressed steel axle guards wascon-
sidered in the 44th Carriage and Wagon
Standards Committee meeting held in
1908 and certain modifications to the
existing des gn were agreed to be carried
on new builds as wellas on the existing ones
during POH to strengthen it and to prevent
its failures.

It is recommended that Indian Rail- On aocount of very tight foreign exchange
wayB should also instal a few eXperi- position and even otherwise it is too early

mental electronic Hot Boxdeteotors to consider even a trial application of this

to gain experience with thisreliablc expensive and intricate equipment,
device which may ultimately have to
be adopted not merely for reducing
the inoident of Hot Box detachment
but also in the vital interest of greater
safety in train operation.

There is immediate need for a substan- Accepted. Except, in Eastern Railway where
tial increase in the number of field it has been implemented, this is under study
engineers and senior supervisors to by the Railways,
overcome the crisis of non-implemen¬
tation of directives. Mere co-diffi cation
of the optimum repair and mainte¬
nance' procedure will not do.

81 Manysicklines are in need of considers- Accepted. Necessary facilities arc being pro
ble improvements in respect of covered vided by the Railways on planned basis,
accommodation, pucca flooring in
the working area, plant and equip¬
ment pit accommodation, layout,
lighting for night working and
supervisions.

24 ?

Annexure XI

Performance of D.G.S. &r D. regarding coverage & supply against programme
indents submitted by the Railways

Central Railway

(fjr 1966-67 requirements)

Percentage

No. of indent* placed .. .. .. ., '

101

No. of items

427

No. of items for whioh supplies were received in time fully ..

188

No. of items for whioh supplies were received partly

144

No.,pf items for whioh supplies delayed fully - ..

23%

No. of terns for wh oh supplies delayed partly

144

32%

Delay in supplies categorised as under

Fully

Partly

•

Items

(1) Delay upto 3 months .. ..

(2) Delay between 3 to 8 months .. .. ..

(3) Delay between 0 to 12 months

(4) Dolay over 12 mohths .. .. .. .. ,,

Total

144

Eastern Railway

(For 1960-07 requirements)

Percentage

Items indonted .. .. .. ,. .. ,,

I-ems covered in time as per D. G. S. & D. time table .. ,,

29%

I‘ems covered late

71%

Extent of delay

1 month to 11 months

Items whore suppl ;os were received in time as per D.G.S. & D’s tone

table .. .. .. .. ..

Nil

Items where supplies wore reoeived after due date as per D.G.S. <fe l).’s

time table

77%

Items still outstanding on the date of report (30-8-68) . . -

23%

Extent of delay in receipt of supply .. ..

1 month

to 18 months

Horlhern Hallway

.(For 1986-67 requirements)

No. of items indonted.

465

No. of items covered by due date

290

02%

No, of itoms covered after due date

1J5

25%

No. of items cancelled

No. of items remained to be ooverod on 31-3-1967 ,.

No. of items supplied by the required date

186

No. of items which were supplied on after the acquired date

133

30%

No. of items whioh remained to be suplied on 31-3-1967

20%

248

Annexure XI— contd.

Northeast Frontier Railway

(For 1968-87 requirements)

Percentage

Items indented

, .

,, ,,

No.’received in time

. .

. * . .

Nil

Items whore supplies were received late ..

. .

1# 67%

No. still outstanding on date (June, 1968)

. •

8 33%

Extent of delay

••

1 month to 16 months

Southern Railway

(For 1966-67 requirements)

Percentage

Items indented

. .

, , , ,

263

Supplies received in time

. .

* , . .

Supplies received after due date

. .

. . ♦ ♦

222 84%

Ifcemsstill out standing for supply on the date of letter (14-8-68)

8 3%

Items oanoelled .. ..

* * «

* . «•

Extent of delay as per A/T delivery date

* *

* e • •

3 month to 20 months

South Central Railway

Items indented .. .. ..

, ,

t • • •

234

Supply received in time in reference to delivery date as per A/T.

Supply reoeived after due date .. .,

. .

* • ♦ «

128 64%

Items still outstanding on the date of report (September, 1968) ..

19 8%

Extent of delay as per A/T delivery date

••

1 month to 12 months

South Eastern Railway

(Information available for “stook Items"

only for whioh supplies were due in 1966-67),

No. of indents placed ..

. «

145

T terns received by due date

. .

. . 4 .

Items reoeived after due date .. .,

. •

111 76%

Extent of delay

••

4 • 4 4

li month to 24 months

Western Railway

During

Percentage

During Peroentage

1968-67

1967-68

No, of items indented . .

.. 338

464

No. of items covered in time

.. 121

36%

231 50%

No. of items reoeived within the delivery period

stipulated in the A.Ts./Orders. ..

20%

167 36%

Noth—T he North Eastern Railway did not furnish the oomplete information.

Annexure XII

List of equipment required by the RDSO in so far as consideration of

safety are governed

IMMEDIATE REQUIREMENTS

S. No. Description of equipment

Civil Research —

1. Track Recording-cum-Research Car.

2 Pulsator with hydraulic rack, test bench etc. for fatigue

testing.

3. Small items such, as jacks, gauges of sorts; proving rings,

strain indicators, calculating machines, small electrical re¬
gistering machines, rail section profile' machine etc.

Formation Engineering —-

1. Equipment required for soil mechanics laboratory such as

Triaxial equipment with pore water pressure device, vane
shear apparatus, direct shear apparatus etc.

Mechanical Engineering ■—*

1. Haulage device for impact tEst ramp.

2. Equipment required to develop measuring wheel and other
telemetric devices.

3. Oscillograph trace assessor.

Signal and Telecommunication —

1. Measuring instruments required for Signalling and Tele¬

communications (118 in number).

Metallurgical and Chemical Engineering —

1. Krautkramers Ultrasonic rail tester—SZ-G2 (2 Nos.) with
spares.

2. Ultrasonic flaw detector USIl’-lO or similar (2 Nos.) with
spares.

3. Transistorised ultrasonic flaw detector (1 No.) with spares
REQUIREMENTS DURING THE NEXT FIVE YEARS

Civil Research —-

1. Universal Testing Machine (Large capacity).

Formation Engineering —■

1. Deep boring equipment.

2. Field test car BG for soil test equipment.

3. Field test car MG for soil testing equipment.

4. Automatic triaxiai shear equipment with pore watei p
sure device electronically controlled.

5. Triaxial equipment with pore water pressure device.

6. Direct shear equipment with XY recorders.

7 . Miscellaneous such as unconfmed testing equipment with
XY recorder etc.

Vf/.T(N)3.\Iuf 'tuit way—18

250

Annexitrf. XII— conld .

S. No. Description of equipment

Mechanical Engineering—

1. New oscillograph car (2 formations comprising of S vehi¬
cles),

2. Equipment like battery set, alternators, tool and plant for
additional mechanical testing units.

3. Additional requirement of oscillograph car channels.

4 . Ampex tape recorder with provision for multiplexing the
trials.

5. Multi-channel intercom equipment for use during field
trials.

6. Additional equipment such as data acquisition and data
processing including telemetric devices.

Metallurgical and Chemical Engineering —

1. Krautkramers Ultrasonic rail tester SZ-62 (2 Nos.) with
spares.

2. Ultrasonic flaw detector USM-1 (I No.) with spares.

3. 3-channel control monitor suitable for rail trolley SZ-58
(1 No.).

4 . Eddy current test equipment for high speed detection of
surface and subsurface defects (2 Nos.).

Appendix

List of places and installations visited, and persons interviewed by the
Railway Accidents Inquiry Committee (1968)

Date Plat* Installation/office Si. No. Person interviewed

visited

9- 9-88 Ohnndnusi . . Zonal Trainin'; 1 Shri Swaran Singh, Principal

School, Northern
Railway.

10- 9-88 Lucknow .. Research, Designs 2 Shri Laljoe Singh, Additional

and Standards Director Standards (Signal and

Organisation. Telecommunication).

3 Shri T. V. Joseph, Director

Research.

4 Shri C. G. Devaya, Additional

Director Standards (Carriage).

5 Shri Dutt Kumar, Director

Standards (Wagon).

0 Shri T. C. Pant, Director Standards
(Mechanical),

7 Shri T. R. Vaohha, Director

General.

8 Shri K. K. Kao, Director Stand-

aids (Civil).

9 Slni S. K. Kanjilal, Director

Standards (Electrical).

10 Shri K. C. Choudhuri, Director

(Met & Chem).

11 Slid M. N. Mukherjee, Joint

Director Standards (Traction).

12 Shri Prabhinder Singh, Joint.

Director Research (Traffic).

12- 9-68 Lucknow .. Loco Workshop, 13 Shri K. G. Uppal, Works Manager.

Northern Railway.

14 Shri B.U. Kalia, Foreman (Erecting
Shop)

lf> Shri N. N. Passi, Assistant Chief
Inspector of Locos.

1(5 Shri Jaswant Singh. Trial Ins¬
pector.

System Technical 17 Shri J. P. Gupta, Principal.

School, Northern
Railway.

Carriage & Wagon 18 Shri H. D. Bhalla, Works Mana-
Shop, Northern ger.

Railway.

19 Shri Manohav Lai, Carriage

Foreman.

20 Shri K. L. Sikka, Electrical

Foreman.

21 Shri B. N. Saini, Wagon Foreman.

22 Shri Sat Pal. Neutral

Examiner.

23 Shri Gurbachan Singh, Train

Examiner.

13- 9-68 Lucknow .. Carriage & Wagon 24 Shri L. S. Gupta, Deputy Chie 1

Shop, Northern Meohanioal Engineer (Works

Railway. Shops).

II. G, Loco Shed, 2o ShriS. H. Mehndi, Loco Foreman.
Northern Railway.

26 Shri Aminuddin, Driver.

27 Shri Chetu Ram, Driver.

28 Shri Mohd Hussain, Driver,

29 Shri Mata Praehad, Fireman.

30 Shri Bhawari Dass, Fitter.

L/J(N)3Mof Railways—19

252

Appendix— contd.

Date Place Installation/office S.No. Person interviewed

visited

13-9-68 Lucknow .. M. G. Loco Shed, SI Shri Mohd Samin Khan, Driver.
North Eastern
Railway.

Dilkusha Cabin B. G„

Northern Railway. 32 Shri ft. N. Sinha, Loco Foreman.
M. G. Station Yard 33 Shri Mohiuddin, Fireman.

Cabin, North East¬
ern Railway.

14-0.68 Lucknow . . Divisional Office, 34 Shri K. K, Khanna. Divisions*
Northern Railway. Safety Officer.

36 Shri D. N. Kohli, Divisional

Mechanical Engineer.

30 Shri Virendra Knmar, Divisional

Engineer,

37 Shri Prem Nath. Divisional

Superintendent.

38 Shri D. D. Srivastava, District

Signal and Telecom Engineer,

N. E. Railway.

30 Shri S. Vonkataramau, District
Meohnnioal Engineer, N.E. Rly.
40 Shri M. S. A. Rao, District En-

f incer, N.E. Bly.

ri D. N. Kaushal, District

Safety Officer, N. E. Rly.

12 Shri Taraeshwar Singh, Section
Officor, GRP/Lucknow (Northern
and North Eastern Railway).

26-9-68 New Delhi ., .. 43 Shri H. S. Hart, Additional

Commissioner of Railway Safety,
Southern Cirolo.

44 Shri 0, R. Sulo, Additional

Commissioner of Railway Safety,
Northern Circle.

46 Shri ft. 8. Pandor, Additional

Commissioner of Railway Safety,
North Eastern Circle.

40 Shri Arya Bhushan, Additional

Commissioner of Railway Safety,
South Eastern Circle.

23-10-68 New Delhi .. 47 Shri B. D. Mehra, Director (Safety

& Coaohing), Railway Board.

48 Shri S. M. Gowrishankar, Director,
Signalling & Telecommunication
Railway Board (Again on 28-4-69).
40 Shri K. Vaidyanath, Director,

Mechanical Engineering, Railway
Board (Again on 29-4-69).

60 Shri N. K. Mehra, Direotor Civil
Engineering, Railway Board
(Again on 29-4.69)

51 Shri K. V. Kasturl RanganDirector.
Establishment, Railway Board.

29-10-68 New Delhi .. 62 Shri R. C. Dutt, Secretary,

Ministry of Tourism and Civil
Aviation, Government of India.

6-12-68 Madras ,. Madras Central Ca- 63 Shri Sinclair Lowe, Motorman.
bin and EMU Car
Shed, Southern
Railway,

253 :

Appendix— contd.

Date Place Installation/office S. No. Person interviewed

visited

.■>-32-68 Madias Madras Contra'Cabin 54 Shri 0. Subramaniam, Motorman.

and EMU Car Shed
Southern Fai'way.

55 Shri A. N. Narasimhan, Panel

Operator.

56 Shri C. T. Jayaraman, Assistant

Signal Inspector.

57 Shri D. Raghavan, Assistant

Signal Inspector.

Divisional Office, 58 Shri A. S. Zaeeheus, Divisional
Southern Bailway. Safety Officer.

59 Shri B. L. Norway, Divisional

Mechanical Engineer.

60 Shri C. D. Srinivasan, Divisional

Mechanical Engineer (C & W).

61 Shri P. M. Joseph, Divisional

Engineer.

62 Shri S. N. Sultan Mahmopd,

Divisional Signal & Telecommu¬
nication Engineer.

63 Shri A. S. Kasturi Bangnn,

Divisional Eleotrical Engineer.
04 Shri T. V. Krishnaraju, Divisional
Eleotrical Enginer (T&D),

65 Shri T. M. Venkataraghavan,

Assistant Eleotrical Engineer

(G).

66 Shri T. M. Thomas, Divisional

Superintendent,

67 Shri C. R. Basappa, Chairman,

Railway Service Commission,
Madras.

0-13-68 Madras .. Headquarters Office, 68 Shri T. Kamaleswaran, Chief
Southern Railway. Engineer.

69 Shri E. B. McAuliffe, Chief

» Signal and Telecommunication

Enggincer.

70 Shri" D.V.K. Sastri, Chief Elec-

trical Engineer.

71 Sbri R. Parthasarathy, Controller

of Stores.

72 Shri G. N. Nair, Chief Personnel

Officer.

73 Shri K. Jankiraman, Transporta¬

tion Superintendent (Safety).

7- 12-68 Peramhur integral Coach Eac- 74 Shri K. Santhanam, Chief Media¬

tory. nioal Engineer.

76 Shri D.R.R. Sastri, Dy. Chief
Mechanical Engineer.

76 Shri T.K.A. Ayer, Works Manager.

77 Shri Rakshit, Shop Superin¬

tendent.

78 Shri Mahuddin, Chief Design

Assistant

Madras . . Headquarters Office, 79 Shri E. S. Muthu Krishna, Chief
Southern Railway. Mechanical Engineer.

SO Shri G. S. A. Saldanha, Chief
Operating Superintendent.

81 Shri V. T. Narayanan, General
Manager.

8- 12-68 Madurai .. Loco Shed, South- 82 Shri S. Baluswamy, Loco Foreman,

ern Railway. Madurai.

•264

Appendix — contd .

Date

Place

Installation/Offiee S. No.
visited

Person interviewed

*-12-68 Madurai .. Loco Shed, South- S3 Shri R. Khadir Baig, Assistant

•m Railway. Loco Foreman, Madurai.

84 Shri G. Stoddard, Retired Loco

Inspector, Madurai.

85 Shri A. Nyamath Ibrahim, Fitter

Ohargeman, Madurai.

SO Shri Abdul Kareeni, Driver ‘A
Grade, Madurai.

Hi Shri C.D* Costa, Engine Esarai
iner, Madurai.

88 Shri M. Palanisamy, Loco Fitter*
Madurai.

Divisional offtce, 80 Sh i N. Raj an Kutty, Divisional.
Southern Railway. Safety Officer.

00 Shri Venugopal, Safety Counsellor
(Permanent Way).

01 Shri NarayanaBwamy, Safety
Counsellor (Mechanioal).

92 Shri B. Jv. Damor, 'Divisional

Mechanical Engineer.

03 Shri ('. Ghana Ratnam, Divisional

Signal & Telecommunication

Engineer.

04 Shri M. J. Alexander, Divisional
Electrical Engineer.

05 Shri V. Kalyana Smularau,
Divisional Engineer.

»fi Shri S. G. Raman, Divisional
Superintendent.

97 Shri A. II. Madni Khan, Station

Master, Cholapuram.

98 Shri P. Thimppatty, Cabinman

Yilangudi.

9-12-68 Tiruchohirapalli Loco, Carriage & 09 Shri 11. U. Vcnkataohallashetty,

Wagon Shops, Worts Manager, (Loco).

Southern Eailway.

100 Shri L. Giuiiiumuthu, Works
Manager (C & IV).

101 Shri G. Narayanan l'otti, R\
Chid Meohanleal Engineer
(Workshops).

Zonal Training 102 Shri K. S. SiibrninuHlom, Super-

School, Southern Intended.

Railway.

103 Shri C. V. B. Meimn, Divisional

Superintendent.

System Technical 104 Shri K. Vlnwaiin1haii, l’rii.cipul
School, Southern

Railway.

10-12-68 Bangalore

255

Appendix— contd .

Date Plat: I HsUUttt-ioii/ S. No. Person Inlii \ li w< d

Ollier visited

10-12-68 Bangftloie System Technical lO-l Shri I’. S. Sripathi, Train ExruiI-

Sohool, Southern tier. Bangalore,

Railway.

100 Shri K. V. Muthuswamy, Head
Train Examiner (MO), Banga¬
lore.

International Ins¬
truments Private
Ltd. Bangalore.

Track Inspection
from Guntnkal to
Hospet.

12- 12-68 Secunderabad Seounderahad Stn 107 Shri if. A. Sequira, Station

tlon. South Cen- Superintendent, Scounderabid.

leal Railway.

108 Shri Mohd. Ibrahim, Statiou
Master, Maula Ali.

lOO Sliri K. S, Rajnn. Guard, Secun¬
derabad.

110 Shri K. Sndardnui Ran, Guard.

Kazlpet,

111 Shri P. .Innki Rasa, Traffic Ins¬

pect or, Secunderabad.

112 Shri N. S. Rodrigues, Sectional

Triffie Inspector, Secunderabad.

I III Shri V. B, Rajnratanam, Assistant
Station Master, Lallaguda.

I 14 Shri P. Venkata Ran, Cabin
Assistant Station Master,
Secunderabad,

I l.i Shri G. Vonkateshwnralu. Switch¬
man, Tenali.

I Hi Shri H. Michael. Signal Inspector,
Shalvabad.

117 Shri 0, K. Safcyanurayuna, Signal
Inspector, Si ountlerabad.

IIS Slut V. Srinivasan. Assistant
Signal Inspector, Secunderabad.
110 Shri A- X- Dayaknr Rao, Electric
Signal Maintainor, Sccundcitbad

120 Shri Sattar Khan, Mechanical

Signal Maintainor, Secunderabad.

121 Shri V. T. V. Gunneswara Rao,

Assistant Mechanical Signal Main¬
tainor, Secunderabad.

13- 12-68 Secunderabad S ; gnal Workshop, 122 Shri M. Ananthanaraynnalah,

South Centra] Rail- Works Manager,

way.

Indian Railways 123 ShriD.P. Purang, Principal.

School of Signal
Engineering and
Telecommunications.

124 Shri J. O. Ribeyro, Divisional
Safety Officer.

12.1 Shri T. R. Pattabhiraruan, Divi¬
sional Mechanical Engineer
(Power).

126 Shri K. Rajagopalan, Divisional

Mechanical Engineer (C. & W).

127 Shri M. Dinamani, Divisional

Engineer.

256

Appendix— contd .

Date Place Installation/Office S. No. Person interviewed

visited

13- 12-69 Secunderabad Indian Railways School 12S Slni H. P. Buin.-t Eao, Divisional

of Signal Engineering Signal & Telecommunication En-

and Teleoonimun- g sneer.

ieations

129 Shri D. M. Conveyers, Divisional

Electrical Engineer.

130 Shri K. Srinivasaoharyahi, Div i¬

sional Superintendent,

Lallaguda C&W 131 Shri i. K. Puri, Works

Workshop, South Manager.

Central Railway.

Headquarters office 132 Shri G. S. Kajau, Transportation
South Central Super intendent (Safety),

Railway

14- 12-68 Do. Do. 133 ShriN. Huzra, Chief Engineer.

134 Shri A. Laksliminarayanan, Chief

Signal & Telecom Engr.eer.

135 Shri M. Sundarosan, Controller of

Stores.

136 Shri V. Scetharauian, Ch'ef

Electrical Engineer.

137 Shri N. S. Swaininathan, General

Manager.

138 Shri A. It. Sundara Rajru, Chief

Personnel Officer,

139 Shri H. R. Chopra, Chief

Mechanical Engineer.

140 Shri M. A. Uthappa, Chief

Operating Superintendent.

15 12-08 Aurangabad Track Inspection—. 1-11 Shri L. Lingesan, Assistant

Aurangabad to Engineer.

Manmad—-South 142 Shri K. Seshaohalem, Permanent

tentral Railway. Way Inspector, Seoundcrahad.

143 Shri A. K. Naidu, Permanent Way

Inspector, Alir.

144 ShriK. Mal'iah, Senior Permanent

Way Inspector, Nekonda.

145 Shri G. Narsimha P,eddy, Assistant

Permanent Way Inspector (MG)
Guntakal. »

30- 12-08 New Delhi . . Headquarters offioe— 146 Shri D. B. Vohra, Transportation

Northern Bailway. Superintendent (Safety).

147 Shri B. D. Ganr, Chief Engineer,

148 Shri P. C. Bhattaeharyya, Chief

Signalling & Telecom Engineer

149 Shri A. Naudkeolyar, Deputy

Chief Electrical Engneer.

150 Shri V. S. Chopra, Chief Mecha-

nioal Engineer.

151 Shri V. P. Sawhney, Ch ef Operat¬

ing Superintendent.

152 Shri G. Baj, Control'er of Stores.

153 Shri A. B. Lai, Chief Personnel

Officer.

154 Shri M. N. Bery, General Manager.

31- 12-68 Tughlakabad Marshalling Yard— 155 Shri G. D. Sharma, Head Train

New Delhi .. Northern Railway. Examiner,

156 Shri Som Dutt, Train Examiner.

157 Shri M, M. Chakravarty. Neutral

Train Examiner.

257

Appendix— contd .

Date Place Installation/Office S. No. Person interviewed

visited

31 *12-08 Tughlakabad,
New Delhi

31-12-68 Delhi

6-1-09 JaMalpur

7-1-09

Marshalling Yard—
Northern Hallway

158 Shri Manohar Lall, Shunting

Jamadar.

159 Shri Charanjit Singh, Assistant

Yard Master.

160 Shri Ouna Nand, Yard Foreman

101 Shri Vijay Kumar, Driver, Grade
‘C\

i 0- Shri Karam C'hand, Driver, Grade
C’

Delhi Main Station,
Northern Railway.

Loco Workshops,
Eastern Railway.

163 Shri Sant Lall, Fireman, Grade

‘C\

164 Shri Gnlshan Kumar, Fireman,

Grade ’O’,

166 Shri Jagdish Chandra, Cabin
Master.

166 Shri O. P. Sohankar, Penal

Operator.

167 ShriN. Sardana, Block Inspector.

168 Shri S. G. Gupta, Assistant Block

Inspector,

169 Shri P. L, Sharing, Electrical

Signal Maintainer.

170 Shri Islam Chand, Driver, Grade

‘C\

171 Shri C. N. Kapur, Deputy Chief
Mechanical Engineer.

1 72 Shri V. P. Chadha, Works Manager.

173 Shri C. J. Gaudencio, Foreman

Wheel Shop.

174 Shri G. C. Malliek, Electrical
Foreman.

175 Shri B. K. Tiwari, Assistant

Foreman. Smithy Shop.

176 Shri I. C. Mondal, Assistant Fore¬

man, Fitting Shop.

177 Shri S. R. Mookerjee, Loco Ins¬

pector,

178 Shri B. B. Lall. Driver, Grade

‘B’.

Lidian Railways
Sohooi of Mecha¬
nical and Electrica 1
Engg.

179 ShriK. K. Neogi, Diesel Driver.

Grade ‘C.

180 Shri H. P. Bakshi, Permanent

Way Inspector.

181 Shri S. K. Paul, Permanent Way

Inspector.

182 Shri R. K. Dhara, Assistant

Permanent Way Inspector.

183 Shri M. Ganguli, Safety Counsellor

(Traffic).

184 Shri A. C. Ohowdhury, Safety

Counsellor (Loco).

185 Shri A. N. Mukherjee, Safety

Counsellor (P, Way).

186 Shri P. K. Kundu, Safety Coun¬

sellor (C & W).

187 Shri L. R. Gosain, Principal.

188 Shri S. N. Chatterjee, Senior
Assistant Professor.

258

Appendix— contd .

Date l J laoe Installation/office S.No. Verson interviewed

visited

8-1-69 Chittarunjan Chittaranjan Loco- 189 Shri T. (_'. Ohadlni, Ch ef Meobo-

motive Works. nioul Engineer.

190 Shri 0. Ohalapati ltao. General
Manager.

8- 1-69 Andat . . Marshal ling Yard 191 Shri Pabitra Ohoudliury, Train

Examiner.

192 Shri N. K. Ghakravorly, Neutral

Train Examiner.

193 Shri M. S. Gujral, Divisional

Superintendent, Asansol.

9- 1-69 Kharagpur .. Carriage & Wagon 194 Shrj K. Prasad, Deputy Chief

Shops, South East- Mechanical Engineer, Wf rk•

ern Railway. shop.

19S Shri R. K. Rau, Deputy Chief
Mechanical Eng'neev(Deisels).

198 Shri K. B. L. Wadlnva, Works
Manager (Carriage),

197 Shri B. Rangarajan, Works

Manager (Wagon).

198 Shri g. g, Jfayak, Works Manager

(Diesel),

199 Shri K. P. Aoharjee, Neturul

Train Examiner (WRgon).

200 Shri S. K. Gangopadhyay, Neutral

Train Examiner (Carr,age).

9 169 Ktiai&3pur •• Divisional Oifioe, 201 Shri G. IT. Jagdalc, Divisional
South Eastern Engineer.

Railway.

202 Shri N. Subramaninu, Divisional

Safety Officer.

203 Shri Harnam Singh, Divis onul

Mechanical Engineer (Loco).

204 Shri S. 0. Das, Divisional Mechani -

cal Engineer (C. A W ).

205 Shri N. N. Dutta, Divisional

S gmvl & Telecommuu cat'on E 11
g'neer.

206 Shri H. L. Varrna, D visional

Superintendent.

10- 1-69 Puri .. Sick Lines, Purl 207 Shri V. V. Subramaniam, Station

Station, South Master, T’uri

Eastern Railway. 208 Shri K. V. Rao, Assistant Station
Master, Sompeta.

209 Shri D. N. Murthy, Guard Grade

'B 1 , Khurda Road.

210 Shr D.M. RaoPatnaik, Divisional

Transportation Inspector.

211 Shri P. N. Bewarta, Train Exami¬

ner, Khurda Road,

212 Shri D. Raja Rao, Cab ulnae,

Khurda Road.

213 Shri Chand Narain. DivVona

Superintendent, Khurda Road.

11- 1-89 Caioutta .. Headquarters office 214 Shri R. .Taganathan, Transporta-

Eastern Railway. tion Superintendent (Safety).

21 o Shri S. B. Zaheer, Chief Personnel
Officer.

216 Shri V. Parthasarathy, Chief
Signal and Telecommunication
Engineer.

259

Appendix— contd .

Date Place Installation/offiee S.No. Person interviewed

visited

11- 1-69 Calcutta .. Headquariers offico 217 9hri P. R. Mukerjee, Engineer in-

Eastern Railway. Chief (Traction).

218 Shri N. Padmanftbhan, Chief

Electrical Engineer.

219 Shri R. K. Tandon, Controller of

Stores.

220 Shri B. L. C. Saatri, Ch ef Opera i

in" Superintendent.

221 Shri A. L. Koehar, Chief Mocha ni

cal Engineer.

222 Shri G, P. Worrier, General

Manager.

223 Shri P.C.Va'sh,Chairman,Railway

Service Commission. Calcutta,

12- 1-69 Headquarters office 224 Shri N. Dutt, Transportation

South i| , Eastern Superintendent, (Safety).

Railway.

225 Shri J. N. Roy, Chief Personnel

Officer.

226 Shri P. A. O’Souza, Chief Signal

and Telecommunication Engineer.

227 Shri S. P. Tonse, Chief Electrical

Engineer.

228 Shri A. K. Rao. Controller of

229 Shri P. K. Gunguli. Chief Kn

gineer.

134-89 230 Shri K. L. Bery, Chief Mechanical

Engineer.

231 Shri S. P. Chatterjee, Chief Operat-

ing Superintendent.

232 Shri Jagjit Singh. General Mara

ger.

M/a.Beni Ltd.,How- 238 Shri K. K. Mukerjee, Retired
rah. General Manager, Eastern

Railway.

14-169 MughalBarai .. Humpyard, Eastern 234 Shri Shams-ul-Huq, Assistant Yard
Railway. Foreman.

235 Shri Mukhtar, Head Fitter.

236 ShriM. N. Sinha, Assistant Station

237 Shri G. A. Singh, Assistant, Yard

Master.

238 Shri Watan Singh, Train Exami

ner.

239 Shri Rajeswari Singh, Train Exa¬

miner.

14 1-69 Varanasi Diesel Locomotive 240 Shri M. L. Puri, Chef Mechanical

Works. Engineer,

241 Shri P. N. Mathur, General Mana¬
ger.

212 Sbri K. Raman, Chief Design
Engineer.

20-1-69 Ajmer Loco Carriage and 243 Shri M.L.Khanna, Works Manager

Wagon Shops, 1C 4 W).

Western Railway,

260

Appendix— contd .

Date Place fnatallatiou/ollico S. No. Person interviewed

visited

20"! 6!) Ajmer Loco Carriage end 244 ShriD. B. Singh, Works Manager

Wagon Shops, (Loco).

Western Railway. 245 Shri S. K. Moitra, Deputy Chief
■Mechanical Engineer.

241) ShriFramroz, Head Train Kxumi*
nor.

217 Shri A. L). Gandhi. Train Exa¬
miner.

24s Shri Sher Singh Yadav, Train-
Examiner.

211-00 Track Inspection

Chittorgarh (o
Udaipur City.

Udaipur Zonal Training 240 Shri H. N. Kidwai, Principal.

School Western

Railway, 200 Shri II. L. Ahuja, Permanent Way

Inspector, Udaipur City.

201 Shri It. K. Stehre, Permanent Way

Inspector, Udaipur City.

252 Shri P, M. Chavan, Assistant

Permanent Way Inspector, Udai¬
pur City.

253 Shri Inder Kumar, Assistant

Permanent Way Inspector, Phulad

204 Shri S. L. Khanna, Assistant

Divisional Safety Officer, Ajmer
Division.

255 Shri J. N. Kupur, Divisional

Mechanical Engineer, Ajmer

Division.

200 Shri L- S. Satyanarayanuruo, Divi
soinat Engineer, Ajmer Divi¬
sion.

257 Shri M. it. Huridas, Divisional

Signal and Telecommunication
Engineer, Ajmer Division.

258 Shri H. I. Motiauey, Divisional

Superintendent, Ajmer Division.

24-i tin Ahmedabad Sabarniati Itail

Welding Plant.

Western .Railway.

Ahmedabad Sta- 259 Shri G. C. Pandya Assistant Sta¬
tion. Western tion Master, Vishwamitri.

Railway.

200 Shri S. N. Kulkar, Assistant Sta¬
tion Master, Asarva Jn.

261 Shri Unia Shankar K. Trivedi,
Guard Grade ‘C’, Ahmedabad.

202 Shri S. R. Dass, Guard Grade ‘C\

Ahmedabad.

203 Shri Maghanblmi Jama Bhui,

Switchman, Anand Jn.

264 Shri G. R. Sham Ran, Chief
Signal Inspector, Ahmedabad.

205 Shri Horni D. Segv-ewala, Mecha¬

nical Signal Maintuiner. Broach
Jn.

261

Appendix— contd .

Date Plaoe tnstalla,tion/offioe S. No. Person interviewed

visited

31-1-69 Baroda Railway Staff College 266 Shri Rajendra Rev, Principal

Divisional Offi-e 267 Shri S. G. Samant, Divisional.
Western Railway Supeiintendent.

268 Shri R. A. Agarwal, Divisional

Safety Officer,

269 Shri N. C. Sinha, Divisional

Meohanioal Engineer.

270 Shri M. K. Kaul, Divisional

Signal and Telecommunication

Engineer.

271 Shri J. N. Pendse, Divisional

Engineer.

272 Shri C. L. Chadda, Divisional

Accounts Officer.

I-2'll I! urlhty Carriage and Wagon 273 Shri A. K. Sawhney. Work

Workshops, Matunga, Manager.

Central Railway.

274 Shri R. K. Tyagarajan, Deputy
Chief Mechanical Engineer.

Bombay V.T. Cabin 275 Shri Y. S, Katre, Station Super¬
intendent, V.T.

276 Shri T. S. Ghadge, Assistant

Station Master, V.T.

277 Shri D. N. Shenoy, Electrical Sig¬

nal Maintainor, Byculla.

278 Shri A. Patrick, Electrical Signal

Maintainor, Kurla.

279 Shri H. V. P. Sinha. Signal Ins

peotor, Kurla .

280 Shri G. Govindau Kut-ty. Signal

Inspector, Byculla.

Headquarters office Cw»- 281 Shri V. K. Shrivaatava, Divisional
I ral Railway, Bombay. Safety Officer

282 Shri Cyril Christian, Divisional

Electrioal Engineer.

283 ShriD.N. Rno, Divisional Mocha-

nical Engineer.

284 Shri N. Appukuttan. Divisional

Engineer.

285 Shri B. P. Mathur, Divisional

Signal and Telecommunication
Engineer.

286 Shri P. V. Gole. Divisim-al

Superintendent.

287 Shri G. D. Tapase, Chairman,

Railway Service Commission.
Bombay.

2-2-09 .. EMU Car Shed 288 Shri K. Raghunathan, Foreman.

Bombay Central,

Western Railway.

289 Shri C. Pereira, Motorman.

290 Shri L. K. Israni, Motorman.
Headquarters Office, 291 Shri K. J. Narendra Singh,

Western Railway. Transportation Superintendent

(Safety).

292 Shri T. S. Viswanathan, Chief

Electrical Engineer.

293 Shri Girdharadas, Chief Per¬

sonnel Officer.

291 Shri V. C. Paranjape, Control!

of Stores.

262

Appendix— contd .

1 ) t-te

Place

Instillation/ Serial

office visited No.

J*oraoj) interc ies\ ed

3-269

Bombay

Headquarters Offioe, 295
Western Railway.

Shri It. S. Mehta, Chief
& Telecom mun; cat ‘ on

iaeer.

Signal

Eng-

296 Shri M. J. Palol, (.'kief Engineer.

297 Shri C. I). Mirohandaney, Chief

Mechanical Engineer.

298 Shri ft. Sampath. Chief Operating

Superintendent.

Headquarters Office, 299 Shri G. S. Khosla, General
Western Railway. Manager.

Headquarters Office, 390 Shri II. V. Samuel, Transportu-
(lentrnl Railway. tion Superintendent (Safety).

30) Shri V. S. Gupta, Chief Electrical

Engineer.

302 Shri B. T. Shahani, tffiief Per¬

sonnel Officer.

303 Shri G. C. Basavraj. Controller

of Stores.

f 2 69 Dn. Do. 304 Shri R. K. Dandelcar, Chief

Signal and Telecommunication

Engineer.

305 Shri Hari Sinha, Chief Engineer .

306 Shri P. N. Khanna, Ch’ef Me-

chan ical Engineer.

307 Shri V. Ramana.than, Chief

Oporati ng Superintendent.

308 Shri B. 8. D. Baliga. General

Manager.

3 2 (59 Blmsawal Zonal Training 309 Shri K. V. Pandit, Principal.

School, Central
Railway.

Track Inspection 31 o Shri X. R. Xaidu, Permanent

front Bhueawo) to Way Inspector. Fachora.

Jalgaon.

311 Shri S. P. Joelii, Assistant Per¬

manent Way Inspector, Akola.

312 Shri J. C. Pradhan, Sub-Per¬

manent Way Inspe -tor.
Dharwah-Moti bagh.

7-2 69 New Delhi 31.3 Col. D. McMullen, Retired Chief

Inspecting Officer of Railways,
British Ministry of Transport,

U. K.

Again on 13-2-69 and 14-2-69.

19-2-69 Barauni Garhara Yard, 314 Shri B. N. Malluk, Assistant

North Eastern Station Master, Barauni.

Railway.

316 Shri P. K. Ohakrahort.y, Ass's tent
Yard Master, Garhara.

316 Shri Tluikur. Shunting Jemadar,

Garhara.

317 Shri Kailasli, Shunting Janiadar

Barauni.

318 Shri V. X. Srivastava. Train

Examiner, Cliupra.

319 Shri J. N, Ohoah Dastidar.

Train Examiner, Garhara.

263

Appendix— conld .

Date Pln-e Installation/ Serial Person interviewed

office visited No.

20- 2-6!) Darjeeling Darjeeling Station 320 Slrri G. B. Karmarkar. Pointsman,

Northeast Frontier Siiiguri.

Railway.

221 Sliri (.'hander U r. (,'hetri, Pilot-
man . Darjeeling.

322 Shri A. B. Roy, Assistant Traffic

inspector, Kursoong.

323 Shn N. N. Dish, Station Master.

Malda Town.

324 Shri Baebau Parsad Gupta.

Assistant Station Master,
Kishengaivj.

323 Shri D. I’. Mukerjee, Guard
Grade‘A’, Alipurduar Jn.

326 Shri T. K. Nag. Guard, Grade
‘O’, Siiiguri.

21- 2-60 Alipurduar Jn Zonal Training 327 Shri B. 0. Banei'jee, Superimon-

S'hool, Northeast flenl.

Frontier Railway.

New Bengal- Loco Carriage it 32H Sardar Atma Singh, Work 8 Man tiger
gann. Wagon Shops.

Northeast F mn ■
t iet Railway.

3241 Shri P. R. Jain, District Elat
trical Engineer.

J2-2-6!' Track inspection

from Lumding t c >

Lower Haflong,

23-2-63 Gauhati Running Room and

Ambulance Oar.

New Gauhati,

Headquarters Office, 33U Shri It. K. Dass, Permanent

Northeast Frontier Way Inspector, Bongaigaon.

Railway.

331 Shrf S. K. Ohakraborty, Per¬

manent Way Inspeotor, Lum-
ding.

332 Shri A, K. Chanda, Assistant

Permanent Way Inspector,
Pandu.

333 Shri A. K. Choudhary, Assistant

Permanent Way Inspector,
Kumedpur.

334 Shri S. K. Gupta, District Safety

Officer, Alipurduar.

333 Shri A, D. Jog, District Signal
and Telecommunication Engineer,
Alipurduar.

330 Shri G. Gray, Distriot Mechanical
Engineer. Alipurduar.

337 Shri Jf. Sharrna, District Engi¬

neer, Alipurduar.

338 Shri C. S. Christian, Transpor¬

tation Superintendent (Safety).

33!) Shri V. V. Shensi, Chief
Signal * Telecommunication
Engineer.

340 Shri D. G Divgi, Chief Personnel

Offioer.

264

Appendix— contd .

Date Place Installation/ Serial Person interviewed

Office visited No.

23-2-69 Oauhati

2 1 2 1(9

26-2-69 Gorakhpur

27 2 69 Gorakhpur

16.3-69 New Delhi

Headquarters Office, 341 Shri M. I. Chhaya, Chief Engi-
Northeast Froniter neer.

Railway.

342 Shri S. S. Kochak, Chief Elec¬

trical Engineer.

343 Shri V. N. Agharkar, Controller

of Storeg.

314 Shri D. K. Subarwa), Chief
Meohanioal Engineer.

345 Shri H. F. Pinto, Chief Opera¬

ting Superintendent.

346 Shri H. M. Chatterjeo, General

Manager.

Loco, Carriage & 347 Shri K. A. Tikku, Works Manager
Wagon Workshops, (Loco).

North Eastern
Railway.

348 Shri C.M. Mani, Works Manager

(C.&W.).

349 Shri B. R. Pahwa, Deputy Chief

Mechanical Engineer.

Headquarters Office, 350 Shri B. B. Singh, Permanent
North Eastern Way Inspector. Gorakhpur.

Railway.

351 Shri R. K. Sharma, Assistant

Permanent Way Inspector,
Badshahnagar.

352 Shri B. Hana, Assistant Per¬

manent Way Inspector, Rafi-
nagar.

Centralised Traffic 353 Shri R. N. Sinha, Panel Operator.
' , ->ntrol, North
tern Railway.

354 Shri S. K. Saxena, Panel Ope¬
rator.

356 Shri V. P. Tripathi, Signal
Inspector.

356 Shri Dhanpnt Prashad, Mecha¬

nical Signal Maintainor.

357 Shri Mahatam Parsad, Electrical

Signal Malntainer.

Headquarters Office, 358 Shri Ajit Rosha, Transportation
North Eastern Superintendent (Safety).

Railway.

359 Shri S. A. Srinivasan, Chief

Signal & Tele-oomnninication
Engineer.

360 Shri S. C. Chatterjee, Chief

Personnel Officer.

361 Shri U. H. Mehta, Chief Engineer.

362 Shri S. N. Biswas, Controller

of Stores.

363 Shri M. M. Bam, Chief Mcoha-

nical Engineer.

364 Shri A. K. Gupta, Chief Opera¬

ting Superintendent.

365 Shri P. C. Mathew. General

Manager.

366 Shri M. A. Rao, Retired Member

Engineering, Railway Board.

266

Appendix— conic?

Place Installation/ Soria) Person interviewed

Office visited -No.

10-3-69 New Delhi

1 1-3-69

12.3-09

18-3-69 New Delhi

367 Shri 0. P. Bhalla, Retired
Member Mechanical, Railway

Board.

308 Shri L. D. l’anke') Representative*

369 Dr. S.S.L. VerMia of Federation

370 ShriR. Dayal [ of Class I Rail-

371 Shri .T. N. fcohlj )■ way Officers’

372 ShriJ. R-ajngo- j Association.

pala chari.

373 ShriF. DnCos a J

374 ShriS. W. Shiveshwarkar. Director

General (Vigilance), Railway

Board.

375 Shri Kripal Singh. Relived Chair¬

man. Railway Board.

376 Shri K. 0. Bail. Retired Addi¬

tional Member Mechanical,
Railway Board.

377 Shri Rajadhyak- "j

sha j Representatives

378 Shri P. Suhhra- j of National

miah, i Federation of

Indian Rail-

370 ShriK. H. Knl- f wayroen,
karni.

380 ShriR. M.

Shukia. i

3SI Shrill.L.Slmrtna J

382 Shri Ilarbans Singh, Retired

Member Staff, Railway Board

383 Shri A. K. Gupta, Retired Com¬

missioner of Railway Saf.sty
3SH ShriH.S. Gita- "J Representatives
.terjeo. | of All India

385 Shri A. 0. Lahiri | Station Mas-

386 Shri K.K. Pandit > ters Assooia-

387 Shri R.D. Dass- I tion.

SSs/^ffS.BajHa ,

389 ShriH. B. Singh j Representatives

300 ShriK. K.Pra- | of All India

bhakaran. 1 Guards’ Goun-

301 Shri B. N. f oil.

Bhargava. }

302 Shri K.K.BhatiaJ

303 Shri Joginder "j Representatives

Singh | of Indian

394 Shri S. L. Gupta [-Railway Etigi-

395 Shri K ,K. Manrai j neering Ins-

396 Shri Tej Pro- I pectors' Asso-

kash, J eintion.

307 ShriJ.C, Siudhi 1 Representatives

398 Shri Harehandan | of Indian Rlv s

Singh. I Foremen Asso-

309 Shri S, Bauer ji / Nation and

400 Shri J.N. Bhatia- J Technical

cliarjee. | Supervisors’

J Association.

Appendix— coni d,

Date

Place

Installation/
Office visited

Serial

No.

PensMW interviewed

13-3 59

Mew Delhi

401

402

403

ShriD.CJ. I Representatives

Aeharya. | of Indian Rail-

Shri D. R. Roy Way Signal and
ShriS.K. Ra- [ Telecominun ioa •
jendra Babn J tion Association

404

Shri B. R. Kinra, Drieetor Rail
way Stoios, Railway Board.

(M-fiU

Do.

405

Shr D. Sen, Additional D,rector,
Central Bureau of Investigation.
Govt, of India

i w-oo

Do.

406

Shri P. C. Bhagnt, Director
General. Supplies and Disposals.
Govt.of India.

28-4 69

Do.

407

Shri K. K. Das, Director Security,
Railway Board/I.G.R.P.F.

408

Shri S.K.Singh, Scientific Officer,

I’syoho Technical Cell, Railway
Board.

;U/.T(N)3Mofi:ailwi,vs—2.000--15.6-70—GIPS

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